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HomeMy WebLinkAboutESD-004-14EMERGENC Unfinished Business (a) A 4 ;L91 Aj ND FIRE SERVICES DEPARTMENT Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE Date: March 17, 2014 Resolution#: of -495-1 ( By-law#: Report#: ESD -004-14 File#: Subject: EMERGENCY AND FIRE SERVICES DEPARTMENT — FIRE MASTER PLAN RECOMMENDATIONS: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT the Fire Master Plan as prepared by Dillon Consulting, be approved by Council as the strategic template for the delivery of fire protection services for the Municipality of Clarington; and 2. THAT the Director of Emergency Services be directed to develop a comprehensive implementation plan including proposed operating and capital budget requirements to be presented to Council on an annual basis for consideration as a component of the fire department budget submission process. . C,.��- Submitted by: Reviewed by Gord Weir, Director of Emergency Services GW/mb - �— Franklin Wu, Chief Administrative Officer CORPORATION OF THE MUNICIPALITY OF CLARINGTON 40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO LIC 3A6 T 905-623-3379 REPORT NO.: ESD -004-14 �M 1eTSl,(rl09111 � 1 �. The Fire Protection and Prevention Act states that, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances." Since 2003, Fire Master Planning documents have been available to Council when making decisions regarding fire protection services for the Municipality. In 2008, a Fire Master Plan Update was produced. The Update attempted to address immediate and potential core challenges facing Emergency and Fire Services in a growing municipality. The 2008/2009 global recession and localized minimal growth prohibited Council from acting on a majority of recommendations contained within this Update. 2. COMMENTS In the Province of Ontario the delivery of fire protection services are guide by the Fire Protection and Prevention Act including the strategic optimization of the three lines of defense: 1. Public Education and Prevention; 2. Fire Safety Standards and Enforcement; and 3. Emergency Response The analyses within the Fire Master Plan recognize three strategic priorities for the delivery of fire protections services within the Municipality of Clarington: • The utilization of a comprehensive Community Risk Profile to determine the level of existing and projected fire safety risks within the municipality as the basis for assessing the current and future fire protection services; • The optimization of the first two lines of defence including public education and prevention, and the utilization of fire safety standards and enforcement to provide a comprehensive fire protection program within the municipality, based on the results of the Community Risk Profile; and • Emphasis on strategies that support the sustainability of fire protection services that provide the most cost effective and efficient level of fire protection services resulting in the best value for the community. REPORT NO.: ESD -004-14 3. CONCURRENCE: None 4. CONCLUSION The Emergency and Fire Services Department Master Plan provides 41 recommendations that if acted on will: • Optimize the first two "lines of defence" through enhanced prevention inspections and fire safety education efforts; PAGE 3 • Provide for the third "line of defence" within an overall community fire safety plan thereby maintaining an effective and efficient fire suppression capability; and • Improve the effectiveness of non -operational divisions, internal communications, records management and training. 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 Services Attachments: Attachment 1 — Emergency and Fire Services Department Master Plan (Distributed Separately) February 2014 CRINGT 0 St'Ri"(j W- T. Submitted by: DILLJON CONSULTING EMERGENCY FIRE ail Municipality of Clarington Fire Master Plan Final Report February 2014 Prepared By: Dillon Consulting Limited Municipality of Clarington Fire Master Plan Final Report — February 2014 EXECUTIVE SUMMARY This Municipality of Clarington Fire Master Plan (FMP) has been developed to provide a strategic framework to assist Council in making decisions regarding the provision of fire protection services based on the Municipality's local needs and circumstances. The overarching goal of this report is to present a clear understanding of the existing and future requirements of the CEFS. Referencing best practices, including relevant standards and legislation, this study includes an assessment of all divisions within the CEFS. The analyses and recommendations contained within this plan have been prepared with the regard for the legislated responsibilities of the municipality as contained within the Fire Protection and Prevention Act (1997) (FPPA) and the Occupational Health and Safety Act (OHSA). Our interpretation of Council's commitment to public safety is to provide the optimal level of fire protection services as determined through the assessment of the "needs and circumstances" of the Municipality of Clarington as referenced in the FPPA, and in achieving a cost effective and efficient level of fire protection services, resulting in the best value for the community. Significant emphasis has been placed on the use of Public Fire Safety Guidelines (PFSG) and the resources provided by the Office of the Fire Marshal - Ontario (OFM). One of the primary roles of the OFM is to provide assistance to municipalities through the provision of information and processes to support determining the fire protection services a municipality requires based on its local needs and circumstances. The Comprehensive Fire Safety Effectiveness Model and Fire Risk Sub -Model are examples of the OFM documents that have been utilized to prepare this FMP. Within the Province of Ontario the delivery of fire protection services are guided by the FPPA including the strategic optimization of the three lines of defence which include: I. Public Education and Prevention; II. Fire Safety Standards and Enforcement; and III. Emergency Response. Optimization of the first two lines of defence has proven to be an effective strategy in reducing the impacts of fire, and fire related injuries across the province. Recently the Fire Marshal of Ontario indicated that further optimization of programs targeted specifically at the first two lines of defence must be a priority for fire services within Ontario. Emergency response including fire suppression resources are a necessary tool in managing the overall fire risk within a community. However, as indicated by the Fire Marshal of Ontario, preventing fires through the delivery of education and prevention programs, and utilization of the appropriate fire safety standards and enforcement strategies is the most effective means to further reduce the impacts of fire, and fire related injuries across the province. The analyses within this report recognize three strategic priorities for the delivery of fire protection services within the Municipality of Clarington including: • The utilization of a comprehensive Community Risk Profile to determine the level of existing and projected fire safety risks within the municipality as the basis for assessing the current and future fire protection services; Page - i DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 The optimization of the first two lines of defence including public education and prevention, and the utilization of fire safety standards and enforcement to provide a comprehensive fire protection program within the municipality, based on the results of the Community Risk Profile; and Emphasis on strategies that support the sustainability of fire protection services that provide the most cost effective and efficient level of fire protection services resulting in the best value for the community. The FPPA states that, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. " Fire Master Plans are typically developed as ten year plans, with updates completed at the five year horizon. CEFS previously completed a Fire Master Plan in 2003 and a Fire Master Plan Update in 2008. This indicates that the timing of the subject Fire Master Plan study is consistent with best practices for strategic municipal fire services planning. In our view the Clarington Emergency and Fire Services (CEFS) reflects a progressive fire service that, with the support of the current and previous municipal Councils, has developed a comprehensive fire protection plan that is supported by a high degree of public satisfaction and support. The findings of this IMP reflect that under the leadership of the Fire Chief and department management team the Municipality of Clarington is currently providing a level of fire protection services commensurate with its legislated responsibilities as defined by the Fire Protection and Prevention Act, 1997 (FPPA). A summary of the IMP recommendations are provided in the following sections. A review of the IMP should be conducted at the five year horizon, to ensure it continues to align with and serve the needs of the department and the community it serves. Summary of Recommendations The following is a summary of our recommendations for each division of the CEFS: Administration Division: 1. That CEFS regularly review and revise the administrative organizational model to balance the workload and to assign complementary divisions within the span of authority of the respective supervisor. 2. That CEFS continuously reviews and monitors the amount of administrative support and staffing resources required as the IMP recommendations are implemented to ensure sufficient administrative support is provided. Within the short-term horizon (one to three years) of this IMP consideration should be given to incrementally increasing the part-time clerk position to a full-time position. That CEFS complete the ongoing administrative work space assessment for Station 1 including the financial analyses and capital funding requests to implement the recommended workspace improvements. 4. That CEFS continuously review and update (as required) the current Establishing and Regulating By -Law to reflect the proposed service levels, including the performance targets recommended within this IMP. Page - ii DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 5. That CEFS review the Fire Services Dispatch Agreement with Oshawa Fire Services and revise to include performance measures for call taking and dispatching, such as those contained in the NFPA 1221 standard. 6. The CEFS prioritize the development of a partnership/automatic aid agreement with Oshawa Fire Services to provide specialized services such as HAZMAT, rope rescue, high angle rescue, confined space rescue and water rescue. 7. That CEFS investigate enhancing the current automatic agreement with Oshawa Fire Services for responses into Courtice. 8. That CEFS review the current medical tiered response agreement in consultation with the Durham Emergency Medical Service in defining options for Council's consideration in providing fire department medical related emergency response. 9. The CEFS consider additional supervisory roles within the department's organizational structure to improve department succession planning. 10. That future reviews of the development charge by-law consider the recommendations within this FMP. 11. That additional policies and guidelines be developed to address the activities, services and daily operations of all divisions of the CEFS (e.g. additional policies and operating guidelines relating to training, fire prevention and public education). 12. That all CEFS policies and operating guidelines be reviewed annually to ensure they accurately reflect the present day conditions and legislation, which are subject to regular changes. 13. That the existing records management software (CriSys) be used for all possible areas of records management to maintain consistency and optimize the use of the software and the efficiency of data management. 14. That consideration be given to assigning one of the Deputy Chiefs as the CEMC and assigning the Fire Chief and other Deputy Chief as alternate CEMCs. Additionally, some of the administrative tasks related to emergency planning could be supported by municipal staff in other departments. Fire Prevention Division: 15. That CEFS prioritize strategies and initiatives to enhance the first two lines of defence to mitigate emergency call volumes and increase the overall level of fire protection. 16. That CEFS' public education efforts target and address the vulnerable demographics identified within the Community Risk Profile (e.g. seniors and children) with an increased emphasis to provide public education programs to seniors on an annual basis. 17. That CEFS' `Alarmed for Life Program" and other public education programs supporting the first line of defence be targeted at areas within Clarington where extended emergency response times are present due to long travel distances, as identified within the Community Risk Profile. 18. That Council consider the recommended performance targets for fire safety inspections and public education program delivery cycles identified within this section of the report and include them in the CEFS Establishing and Regulating By -Law. 19. That CEFS investigate and purchase enhanced technology such as mobile computer tablets complete with appropriate software and applications, which would allow for on-site reporting and order issuances, and would expedite the fire inspection process. Page - iii DILL 3N CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 20. That the Municipality of Clarington create a Business Directory within the Municipality to assist CEFS with building occupancy and occupancy use. 21. That CEFS continues to review all fees for service on a regular basis and where necessary make recommendations for revisions and or new fees as required to reflect a full -cost recovery system. 22. That the implementation strategy for new positions within the CEFS Fire Prevention and Public Education division include the following three positions within the short term horizon (one to three years) of this IMP: o Hire two additional Fire Inspectors; and o Hire a dedicated Fire and Life Safety Educator. 23. That CEFS continuously assess the need for additional fire prevention and public education resources as a result of monitoring the increased building stock resulting from growth and development within the Municipality. 24. That CEFS develop strategies to utilize on -duty Suppression Division staff, when available, for fire prevention activities. Fire Suppression Division: 25. That CEFS continue to identify performance targets for the Suppression Division including targets for turnout times, first response and depth of response. 26. That CEFS continue to target, track (including the on -scene arrival times) and monitor the first response deployment of four firefighters, and a depth of response deployment of 14 firefighters to moderate risk occupancy, and 24 firefighters to high risk occupancy. 27. That CEFS identify and implement specific strategies targeted to reduce turnout time for both the volunteer and full-time firefighters. 28. That Council prioritize the incremental implementation of full-time staffing at Station 2 in Newcastle by hiring four full-time suppression staff in 2014 and four full-time suppression staff in 2016 in order to achieve the target of 24 hour full-time coverage by the midterm horizon of this IMP. 29. That CEFS consider incrementally increasing the station complement of volunteers at each station from the current 25 to 30 within the short-term (one to three years) horizon of this Fire Master Plan. 30. That CEFS conduct a facility review, including a space -needs assessment for supporting additional volunteers at all stations. Options for temporary solutions could be considered as an interim measure to solve the immediate needs. 31. That CEFS consider the introduction of a Duty Captain position to oversee the operational requirements of the CEFS on a 24 hour basis. This position would be a reclassification of four present Captains. 32. That CEFS consider adding five new volunteer Acting Captain positions to each of the five fire station volunteer complements. Page - iv DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Training Division: 33. That current CEFS training activities be enhanced to provide a Comprehensive Annual Training Program for all CEFS staff as part of the transition to utilizing the NFPA training standards recently adopted by the Ontario Fire Service. 34. That the space needs assessment (recommended within this FMP) include focused consideration of the training space needs requirements including classroom space, and in-service training space. 35. That CEFS investigate opportunities for partnerships with other agencies and neighbouring municipalities to provide access to live fire training. 36. That an additional Training Officer position be considered within the mid-term horizon of this FMP in recognition of the increased fire suppression resources, including full-time and volunteer firefighters, identified within this FMP. 37. That the proposed CEFS Comprehensive Annual Training Program includes scheduled participation by all fire suppression personnel in live fire training exercises on an annual basis, as a minimum. 38. That the proposed Comprehensive Annual Training Program include, where possible, the use of web -based video conferencing and online training programs to enhance the current availability of programs and improve the efficiency of delivering information and training to all fire suppression staff. Apparatus, Equipment and Maintenance: 39. That CEFS develops strategies to maintain the apparatus and equipment replacement schedules and additional reserve apparatus needs in light of the recommendations in this FMP. 40. That the Establishing and Regulating By -Law be amended to include the responsibilities of the Mechanical and Technical Support person. 41. When CEFS stations are receiving a consistently higher number of volunteers responding to the station for calls than the number of seats available, the Municipality should consider options for adding a passenger transport vehicle (i.e. passenger van) to the fleet of that station. Communications and Technology: 42. That CEFS investigate and pursue opportunities to apply technology to improve internal communications, department training, public education, records management and any other applicable areas. 43. That CEFS consider strategies to continuously improve internal communications throughout the CEFS as a whole department. Page - v DILLON CONSULTING Municipality of Clarington Fire Master Plan Final ReportFehruary 2014 TABLE OF CONTENTS EXECUTIVE SUMMARY PAGE I 1.0 INTRODUCTION........................................................................................................1 1.1 Community Background................................................................................................. 1 1.2 Department Background.................................................................................................2 1.3 Clarington Strategic Plan 2011-2014.............................................................................. 3 2.0 LEGISLATION............................................................................................................ 4 2.1 Legislation Fire Prevention and Protection Act, 1997 ...................................................... 4 2.2 Office of the Fire Marshal — Ontario (OFM)................................................................... 7 2.2.1 PFSG 00-00-01 "Framework for Setting Guidelines within a Provincial - Municipal Relationship".................................................................................... 7 2.2.2 PFSG 04-40-03 "Selection of Appropriate Fire Prevention Programs ................ 7 2.2.3 PFSG 04-08-10 "Operational Planning: An Official Guide to Matching Resource Deployment and Risk"........................................................................ 8 2.2.4 PFSG 01-02-01 "Comprehensive Fire Safety Effectiveness Model" (CFEM) ..... 8 2.2.5 PFSG 01-01-01 "Fire Protection Review Process ............................................ 10 2.3 Occupational Health and Safety Act............................................................................. 10 3.0 3.1 4.0 4.1 4.2 4.3 4.4 4.5 4.6 4.7 BE 4.9 4.10 4.11 4.12 4.13 COMMUNITY RISK PROFILE...............................................................................12 Summary of Community Risk Profile........................................................................... 13 ADMINISTRATION DIVISION .................................... Vision and Mission Statements ......................................... Department Organization and Staffing .............................. 4.2.1 Divisions and Organization ................................... Administration Team ........................................................ 4.3.1 Department Management Team ............................ Administrative Services .................................................... Administrative Workspace ................................................ AnnualReport.................................................................. By-laws & Agreements.................................................... 4.7.1 By-laws................................................................. 4.7.2 Mutual Aid Agreements ......................................... 4.7.3 Automatic Aid Agreements .................................... 4.7.4 Medical Tiered Response Agreement ..................... 4.7.5 Communications Services Agreements .................. 4.7.6 Other Agreements ................................................. Capital and Operating Budgets ......................................... 4.8.1 Development Charges ........................................... Departmental Policies and Procedures .............................. Promotions and Succession Planning ................................ 4.10.1 Promotional Process ............................................. 4.10.2 Succession Planning ............................................. Records Management....................................................... Emergency Preparedness.................................................. 4.12.1 Community Emergency Management Coordinator Administration Division Recommendations ...................... 14 14 15 15 17 17 18 18 19 19 19 20 20 21 22 22 23 23 24 25 25 25 26 26 27 28 Page - i D I LLON <I jI I1_ti Municipality of Clarington Fire Master Plan Final ReportFebruary 2014 5.0 FIRE PREVENTION & PUBLIC EDUCATION.....................................................30 5.1 Comprehensive Fire Safety Effectiveness Model.......................................................... 30 5.2 Staffing........................................................................................................................ 30 5.3 Key Functions.............................................................................................................. 32 5.4 Fire Prevention and Public Education Activities........................................................... 32 55 5.4.1 Public Education and Awareness Programs ..................................................... 32 5.4.2 Public Education Performance Measures......................................................... 34 55 5.4.3 Fire Prevention Inspections............................................................................. 35 57 5.4.4 Building Stock.................................................................................................. 36 5.4.5 Optimizing the First Two Lines of Defence....................................................... 36 58 5.4.6 Fire Safety Enforcement................................................................................... 39 60 5.4.7 Fire Safety Plans.............................................................................................. 39 5.4.8 Fire Investigations........................................................................................... 39 6.8 5.4.9 Care Homes for Seniors, People with Disabilities ............................................ 40 5.4.10 Priorities Summary.......................................................................................... 40 5.5 Fees for Service............................................................................................................42 65 5.6 Fire Prevention Division Staffing Resources................................................................. 43 5.7 Community -Based Fire Protection Model..................................................................... 45 5.8 Summary and Recommendations.................................................................................. 46 6.0 FIRE SUPPRESSION................................................................................................48 6.1 Fire Suppression Staffing..............................................................................................48 6.2 Fire Department Water Tanker Shuttle Accreditation.................................................... 51 6.3 Fire Stations................................................................................................................. 51 6.4 Fire Suppression Guidelines, Industry Standards, Industry Best Practices ..................... 55 6.5 PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deploymentand Risk................................................................................................... 55 6.5.1 National Fire Protection Association (NFPA) 1710 Standard ........................... 57 6.5.2 Initial Arriving Company "First Response"..................................................57 6.5.3 Initial Full Alarm Assignment— "Depth ofResponse........................................ 58 6.6 National Fire Protection Association (NFPA) 1720 Standard ........................................ 60 6.7 Summary of Fire Suppression Guidelines, Industry Standards, and Industry Best Practices ..................................................................................................................................... 61 6.8 Current Emergency Response Overview....................................................................... 64 6.8.1 Call Volume..................................................................................................... 64 6.8.2 Emergency Call Incident Types........................................................................ 65 6.8.3 Percentage of Incident Type............................................................................. 66 6.8.4 Response Time Assessment............................................................................... 67 6.8.5 Dispatch Time.................................................................................................. 67 6.8.6 Turnout Time................................................................................................... 69 6.8.7 Travel Time..................................................................................................... 70 6.8.8 Total Response Time........................................................................................ 70 6.8.9 Historic Staffing Response Assessment............................................................. 71 6.9 Assessment of Response Coverage............................................................................... 73 6.9.1 Methodology....................................................................................................73 6.10 Analytic Results........................................................................................................... 74 6.10.1 Coverage Assessment Scenarios....................................................................... 74 6.11 Staffing Considerations................................................................................................96 6.11.1 Volunteer Suppression Operations................................................................... 98 6.11.2 Staffing of Station 2, Newcastle........................................................................ 98 Page - ii D I LLON <I jI I1_ti Municipality of Clarington Fire Master Plan Final ReportFebruary 2014 6.11.3 Span of Control and Succession Planning...................................................... 100 6.12 Summary and Recommendations................................................................................ 101 6.12.1 Recommendations.......................................................................................... 101 7.0 TRAINING DIVISION............................................................................................102 APPARATUS, EQUIPMENT & MAINTENANCE................................................108 7.1 Annual Training Plan................................................................................................. 102 Division Responsibilities............................................................................................ 7.1.1 Live Fire Training.......................................................................................... 104 7.2 Technical Training Program....................................................................................... 104 7.2.1 Prevention and Education Training................................................................ 104 7.3 Training Facilities...................................................................................................... 104 Maintenance Facilities................................................................................................ 7.3.1 Training Technology Opportunities................................................................ 105 7.4 Company Officer Development.................................................................................. 106 7.5 Division Resources..................................................................................................... 106 7.6 Summary and Recommendations................................................................................ 106 8.0 APPARATUS, EQUIPMENT & MAINTENANCE................................................108 8.1 Division Responsibilities............................................................................................ 108 8.2 Current Apparatus and Equipment.............................................................................. 108 8.3 Reserve Fleet Considerations...................................................................................... 111 8.4 Maintenance Facilities................................................................................................ 111 8.5 Fleet Replacement Plan.............................................................................................. 111 8.5.1 Equipment..................................................................................................... 112 8.5.2 Future Fleet Considerations........................................................................... 112 8.6 Summary and Recommendations................................................................................ 112 9.0 COMMUNICATION & TECHNOLOGY REVIEW..............................................113 9.1 Dispatching Services.................................................................................................. 113 9.2 Staffing and Supervision............................................................................................. 113 9.3 Radio Systems............................................................................................................ 113 9.3.1 Next Generation Common Communications Platform Project (NextGen)........ 114 9.4 Opticom System......................................................................................................... 114 9.5 Department Technology............................................................................................. 114 9.6 Department Communication....................................................................................... 114 9.7 Summary and Recommendations................................................................................ 114 10.0 MUNICIPAL COMPARATORS.............................................................................115 11.0 STUDY CONSULTATION......................................................................................119 11.1 Project Team.............................................................................................................. 119 11.1.1 Additional Key Stakeholder Interviews and Consultation ................................ 119 11.2 Project Meetings......................................................................................................... 119 11.3 Public and Stakeholder Consultation........................................................................... 120 11.3.1 Council Workshop Education and Training Session ....................................... 120 11.3.2 Community Information Open House............................................................. 120 11.3.3 Online Public and Stakeholder Survey............................................................ 120 11.4 Summary of Study Consultation................................................................................. 120 12.0 IMPLEMENTATION PLAN...................................................................................121 Page -iii D I LLON I I 11>1 I I 1 %(( Municipality of Clarington Fire Master Plan Final ReportFebruary 2014 LIST OF TABLES Table 1: Clarington Fire & Emergency Services Staffing ........................... Table 2: Municipality of Clarington 2014 Development Charge Rates ....... Table 3: Public Education Programs Delivered (2010-2011) ...................... Table 4: Public Education Performance Targets ......................................... Table 5: Building Inspections and Other Activities (2010-2011) ................ Table 4: Existing Fire Prevention Inspection Performance Measures ......... Table 7: Fire Prevention and Public Education Priority Setting Worksheet. Table 8: Fees for Service........................................................................... Table 9: Existing Staffing Guideline (Policy 2-25-P).................................� Table 10: Current Stations, Apparatus & Minimum Staffing ....................... Table 11: Existing Station Descriptions....................................................... Table 12: NFPA 1720................................................................................. Table 13: Recommended Depth of Response — Municipality of Clarington. Table 14: Historical Turnout Times by Station ............................................ Table 15: Summary of Analytic Results (Emergency Response Assessment) Table 16: Apparatus and Model Year (Trucks) ............................................ Table 17: Apparatus and Model Year (Light Vehicles) ................................ Table 18: Municipal Comparator Group ...................................................... Table 19: Resources, Staffing and Financial Comparison ............................. Table 20: Implementation Plan.................................................................... .14 .22 .32 .34 .36 .36 .41 .42 .49 .49 .52 .58 .64 .66 .92 110 111 117 118 122 Page - iv D I LLON I:IIyTCI.1 li_ Municipality of Clarington Fire Master Plan Final ReportFebruary 2014 LIST OF FIGURES Figure 1: Factors in a Comprehensive Fire Safety Effectiveness Model ............................................. 9 Figure 2: Comprehensive Model applied to a typical Fire Department..............................................9 Figure 3: Clarington Emergency and Fire Services Organizational Structure...................................16 Figure 4: CEFS Chain of Command.............................................................................................. 17 Figure 5: Municipality of Clarington Emergency Planning Structure and Organization (from Emergency Plan, Figure 1).....................................................................................28 Figure 6: Current Reporting Structure of the Fire Prevention Division ............................................ 31 Figure 7: Existing Fire Station Locations........................................................................................ 54 Figure 8: PFSG 04-08-10 Critical Task Matrix............................................................................... 56 Figure 9: First Response Fire Scene Responsibilities...................................................................... 58 Figure 10: Depth of Response Fire Scene Responsibilities................................................................ 59 Figure 11: Emergency Call Volume by Year (2008-2012)................................................................ 65 Figure 12: Historical Call Volume by Type (2008-2012).................................................................. 66 Figure 13: Historic Average Call Volumes (2008-2012) by Percentage Type .................................... 67 Figure 14: Historical Dispatch Times by Type (2008-2012).............................................................. 68 Figure 15: Historical Travel Times (First Arriving Vehicle) by Type (2008-2012) ............................ 70 Figure 16: Historical Total Response Times by Type........................................................................ 71 Figure 17: Historic First Response Staffing Assessment by Type of Call ........................................... 72 Figure 18: Historic Depth of Response Staffing Assessment by Type of Call .................................... 73 Figure 19: Existing First Response................................................................................................... 76 Figure 20: Existing Depth of Response............................................................................................. 76 Figure 21: Existing Depth of Response — NFPA 1720....................................................................... 78 Figure 22: Revised Minimum Staffing Depth of Response................................................................ 80 Figure 23: Revised Minimum Staffing Depth of Response — NFPA 1720 .......................................... 81 Figure 24: First Response Results, Full Time Crew at Station 2 ........................................................ 83 Figure 25: Depth of Response, Full Time Crew at Station 2.............................................................. 83 Figure 26: Depth of Response — NFPA 1720, Full Time Crew at Station 2 ........................................ 85 Figure 27: Existing Conditions — Automatic Aid Impacts.................................................................. 87 Figure 28: Future Do Nothing — First Response................................................................................ 89 Figure 29: Depth of Response, NFPA 1710 - Future Do Nothing ...................................................... 90 Figure 30: Depth of Response, NFPA 1720 - Future Do Nothing ...................................................... 91 Figure 31: Depth of Response — NFPA 1710, Future Full Time Crew at Station 2 ............................. 93 Figure 32: Depth of Response — NFPA 1720, Future Full Time Crew at Station 2 ............................. 94 Page - v D I LLON Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 33: Average Initial Personnel Responding — All Call (2009 — 2012) ....................................... 96 Figure 34: Average Initial Personnel Responding — Fire Calls (2009-2012) ....................................... 96 Figure 35: Average Total Personnel Responding — All Calls (2009-2012) ......................................... 97 Figure 36: Average Total Personnel Responding — Fire Calls (2009-2012) ........................................ 97 Page - vi DILLON CONSULTING APPENDICES APPENDIX A: PFSG 00-00-01 "Framework for Setting Guidelines within a Provincial -Municipal Relationship" APPENDIX B: PFSG 04-40-03 "Selection of Appropriate Fire Prevention Programs" APPENDIX C: PFSG 04-08-10 "Operational Planning: An Official Guide to Matching Resource Deployment and Risk" APPENDIX D: PFSG 01-02-01 "Comprehensive Fire Safety Effectiveness Model" APPENDIX E: PFSG 01-01-01 "Fire Protection Review Process" APPENDIX F: PFSG 02-03-01 "Economic Circumstances" APPENDIX G: PFSG 02-02-03 "Fire Risk Assessment" APPENDIX H: PFSG 02-04-01 "Capabilities of Existing fire Protection Services APPENDIX 1: Community Risk Profile APPENDIX J: Definitions of OFM Response Types APPENDIX K: Public and Stakeholder Online Survey Summary & Consultation Materials Page - vi DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 1.0 INTRODUCTION The Municipality of Clarington initiated this Fire Master Plan (FMP) study as part of its comprehensive community planning process to guide the delivery of fire protection services over the next ten years. Development of a FMP recognizes the continued commitment of Council and senior staff to providing the highest level of services and programs to the community in the most cost-effective and efficient manner. This FMP provides a complete review of the current operations of the Clarington Emergency & Fire Services (CEFS) to assist Council in establishing key objectives for the department. The plan includes recommendations to address both short-term and long-term strategies for the municipality, consistent with the fire master planning process outlined within the Office of the Fire Marshal, Ontario, Shaping Fire - Safe Communities Initiative. The overarching goal of this report is to present a clear understanding of the existing and future requirements of the CEFS. Referencing best practices, including relevant standards and legislation, this study includes an assessment of all divisions within the CEFS. Fire Master Plans are typically developed as ten year plans, with updates completed at the five year horizon. CEFS previously completed a Fire Master Plan in 2003 and a Fire Master Plan Update in 2008. This indicates that the timing of the subject Fire Master Plan study is consistent with best practices for strategic municipal fire services planning. 1.1 Community Background Clarington is located in the Region of Durham, in the Eastern portion of the Greater Golden Horseshoe (GGH). The Municipality is bounded by Oshawa to the west, Lake Ontario to the south, the Township of Scugog to the north and Northumberland County to the east. It has the largest land mass within the Region and a population of 84,550 (2011). Bowmanville is Clarington's largest urban area, home to approximately 38,615 people. Clarington's population has increased by 17.4% over the past 10 years and is expected to increase by 2.4% annually over the next five years. The population of seniors within Clarington, as with most municipalities in Ontario, is expected to continue increasing over the next number of years. The number of residents aged five to fourteen years has also increased. Understanding the demographics and future trends of a municipality is essential to preparing a fire master planning study. The Municipality is transected by the CP (Canadian Pacific Railway Ltd.) and CN (Canadian National Railway Co.) rail lines as well as Highway 401 and Highway 115/35 (and Highway 407 anticipated in the near future). Clarington is home to a deep water port servicing St. Mary's Cement. Land uses in Clarington are diverse. They include urban and rural areas and environmental protection lands. The urban areas are located within numerous hamlets, towns and villages, and are designated for commercial, industrial, residential (high, medium and low-density), institutional and assembly occupancies. 1.0 INTRODUCTION Page - I DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 1.2 Department Background The CEFS history dates back to the 1800's with the establishment of first fire company in Bowmanville in 1854. In 1879, the South Ward Fire Hall opened in Bowmanville. The north ward and south ward fire stations evolved into the Bowmanville Fire Department with one station on Church Street. The Orono Fire Department history dates back to the early 1900's and was organized by the Police Trustees of the Village of Orono. Orono Fire Stations have always been located on Main Street. In 1942, locals built the first fire station in Newcastle village on Mill just north of King Street. In 1976 Carveth Motors was purchased and converted into the present fire station in Newcastle, which will be closed in 2014 when the new station opens. Historically Newcastle firefighters only responded to fires in the village and the surrounding area of Clarke Township was protected by the Orono Fire Department. With amalgamation in 1974 the three fire departments (Bowmanville, Orono and Newcastle) became the Town of Newcastle Fire Department. Since that time the department has evolved and grown into a composite fire service operating from five fire stations with stations being built in Courtice (1979) and Enniskillen (1989). The CEFS operates today as a modern, well-trained, progressive fire department. It aims to protect the life and property of the community from fire and other public safety hazards through prevention, education, planning, and emergency incident services. Dillon Consulting Limited completed a Fire Master Plan Report in 2003 and a Fire Master Plan Update in 2008. The previous Fire Master Plan, completed in 2003 and updated in 2008, assessed the CEFS fire suppression staffing resources and requirements against the `OFM 10 -in -10 guideline' (Office of the Fire Marshal, Ontario, Public Fire Safety Guideline 04-08-12, December, 2001). This guideline was rescinded by the OFM on November 10, 2010, and replaced with PFSG 04-08-12 "Operational Planning: An Official Guide to Matching Resource Deployment and Risk" in January of 2011. The 2003 and 2008 updated Fire Master Plan included recommendations to incrementally hire an additional 20 full-time firefighters over the period 2009 to 2013. These additional fire suppression staff would have provided the opportunity for the CEFS to move strategically towards compliance with the previous OFM 10 -in -10 guideline. However, due to other corporate priorities, and the significant financial impact of hiring additional full-time firefighters, this recommendation was not completed during this period. During this same time period the CEFS successfully negotiated an agreement with the City of Oshawa to provide fire dispatch services. In addition to the benefits of improving the overall fire dispatch (communications) abilities of the CEFS this strategy also created an opportunity to increase the number of full-time firefighters within the department. Four former CEFS dispatch positions were transferred to the suppression division resulting in an increase of four full-time firefighters. This resulted in a partial implementation of the 2003/2008 Fire Master Plan recommendation. In comparison to the 2003/2008 Fire Master Plan the analyses within this review assess the CEFS in relation to current legislation, OFM guidelines, industry standards and best practices. 1.0 INTRODUCTION Page - 2 DILLON CONSUI:IING Municipality of Clarington Fire Master Plan Final Report — February 2014 1.3 Clarington Strategic Plan 2011-2014 The Municipality of Clarington developed a corporate Strategic Plan to guide the strategic priorities of the Municipality through the years of 2011 to 2014 and beyond. The mission for the Municipality of Clarington is to be "Committed to leadership, respect, and the delivery of quality services." The vision for the future is for "Building a sustainable, creative, caring community." The plan highlights the Municipality's Strategic Priorities as: • Promoting economic development; • Maintaining financial stability; • Connecting Clarington; • Promoting green initiatives; • Investing in infrastructure; and • Showcasing the community. This Fire Master Plan identifies recommendations and initiatives to align CEFS to support and action these strategic priorities. 1.0 Introduction Page - 3 DILLON CONSUI:IING Municipality of Clarington Fire Master Plan Final Report — February 2014 2.0 LEGISLATION 2.1 Legislation Fire Prevention and Protection Act, 1997 Within the Province of Ontario the relevant legislation for the operation of a fire department is contained within the Fire Protection and Prevention Act, 1997 (FPPA). The following are applicable sections of the FPPA for reference purposes: PART DEFINITIONS Definitions 1.(1) In this Act, "fire chief' means a fire chief appointed under section 6 (1), (2) of (4); ("chef des pompiers") "fire code" means the fire code established under Part IV; ("code de prevention des incendies") "fire department' means a group of firefighters authorized to provide fire protection services by a municipality, group of municipalities or by an agreement made under section 3; ("service d' incendie") "Fire Marshal" means the Fire Marshal appointed under subsection 8 (1); ("commissaire des incendies") "fire protection services" includes fire suppression, fire prevention, fire safety education, communication, training of persons involved in the provisions of fire protection services, rescue and emergency services and the delivery of all those Services; ("services de protection contre les incendies") "municipality" means the local municipality as defined in the Municipal Act, 2001; ("municipalite") "prescribed" means prescribed by regulation ("prescript") "regulation" means a regulation made under this Act; ("reglement") "volunteer firefighter" means a firefighter who provides fire protection services either voluntarily or for a nominal consideration, honorarium, training or activity allowance; ("pompier volontaire") Application of definition of (3) The definition of firefighter in subsection (1) does not apply to Part IX. 1997, c. 4, s. 1 (2) firefighter Automatic aid agreements (4) For the purposes of this Act, an automatic aid agreement means any agreement under which, (a) a municipality agrees to ensure the provision of an initial response to fires and rescues and emergencies that may occur in a part of another municipality where a fire department in the municipality is capable of responding more quickly than any fire department situated in the other municipality, or (b) a municipality agrees to ensure the provision of a supplemental response to fires, rescues and other emergencies that may occur in a part of another municipality where a fire department situated in the municipality is capable of providing the quickest supplemental response to fires, rescues and other emergencies occurring in the part of the other municipality. 1997, c. 4, s. 1 (4) 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 2.0 Legislation Page - 4 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 (b) provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. Services to be provided (3) In determining the form and content of the program that it must offer under clause (1)(a) and the other fire protection services that it may offer under clause (1)(b), a municipality may seek the advice of the Fire Marshal Automatic aid agreements (6) A municipality may enter into an automatic aid agreement to provide or receive the initial or supplemental response to fires, rescues and emergencies. Review of municipal fire (7) The Fire Marshal may monitor and review the fire protection services provided by services 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. Failure to provide services (8) If a municipality fails to adhere to the recommendations made by the Fire Marshal under subsection (7) or to take any other measure that in the opinion of the Fire Marshal will remedy or reduce the threat to public safety, the Minister may recommend the Lieutenant Governor in Council that a regulation be made under subsection (9). Regulation (9) Upon the recommendation of the Minister, the Lieutenant Governor in council may make regulations establishing standards for fire protection services in municipalities and requiring municipalities to comply with the standards. Fire departments (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. 1997, c. 4, s. 5 (1) Same (2) Subject to subsection (3), the council of a municipality may establish more than one fire department for the municipality. 1997, c. 4, s. 5 (2) Exception (3) The council of a municipality may not establish more than one fire department if, for a period of at least 12 months before the day this Act comes into force, fire protection services in the municipality were provided by a fire department composed exclusively of full-time firefighters. 1997, c. 4, s. 5 (3) Same (4) The councils of two or more municipalities may establish one or more fire departments for the municipalities. 1997, c. 4, s. 5 (4) Fire chief, municipalities 6. (1) If a fire department is established for the whole or part of a municipality or for more than one municipality, the council of the municipality or the councils of the municipalities, as the case may be, shall appoint a fire chief for the fire department. Same (2) The council of a municipality or the councils of two or more municipalities may appoint a fire chief for two or more fire departments. Responsibility to council (3) A fire chief is the person who is ultimately responsible to the council of a municipality that appointed him or her for the delivery of fire protection services Powers of a lure chief (5) The fire chief may exercise all powers assigned to him or her under this Act within the territorial limits of the municipality and within any other area in which the municipality has agreed to provide fire protection services, subject to any conditions specified in the agreement. 2.0 Legislation4,,,�� Page - S DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 PART III FIRE MARSHAL Appointment of Fire Marshal 8 (1) There shall be a Fire Marshal who shall be appointed by the Lieutenant Governor in Council. 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; (b) to issue directives to assistants to the Fire Marshal respecting matters relating to this Act and the regulations; (c) to advise and assist ministries and agencies of government respecting fire protection services and related matters; (d) to issue guidelines to municipalities respecting fire protection services and related Matters; (e) to co-operate with anybody or person interested in developing and promoting the principles and practices of fire protections services; (f) to issue long service awards to persons involved in the provision of fire protection services; and (g) to exercise such other powers as may be assigned under this Act or as may be necessary to perform any duties assigned under this Act. Duties of Fire Marshal 9.(2) It is the duty of the Fire Marshal, (a) to investigate the cause, origin and circumstances of any fire or of any explosion or condition that in opinion of the Fire Marshal might have caused a fire, explosion, loss of life, or damage to property; (b) to advise municipalities in the interpretation and enforcement of this Act and the regulations; (c) to provide information and advice on fire safety matters and fire protection matters by means of public meetings, newspaper articles, publications, electronic media and exhibitions and otherwise as the Fire Marshal considers available; (d) to develop training programs and evaluation systems for persons involved in the provision of fire protection services and to provide programs to improve practices relating to fire protection services; (e) to maintain and operate a central fire college; (f) to keep a record of every fire reported to the Fire Marshal with the facts, statistics and circumstances that are required under the Act; (g) to develop and maintain statistical records and conduct studies in respect of fire protection services; and (h) to perform such other duties as may be assigned to the Fire Marshal under this Act. 2.0 Legislation,„�� Page - 6 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 2.2 Office of the Fire Marshal— Ontario (OFM) As indicated within the FPPA the duties of the Fire Marshal include responsibilities to assist in the interpretation of the Act, to develop training and evaluation systems and enforcement of the Act and its regulations. One of these roles includes the review of compliance with the minimum requirements of a Community Fire Safety Program, which must include: ✓ A smoke alarm program with home escape planning; ✓ The distribution of fire safety education material to residents/occupants; ✓ Inspections upon complaint or when requested to assist with code compliance (including any necessary code enforcement); and ✓ A simplified risk assessment. The OFM has developed Public Fire Safety Guidelines (PFSG) to assist municipalities in making informed decisions with regard to determining local "needs and circumstances" and achieving compliance with the FPPA. 2.2.1 PFSG 00-00-01 "Framework for Setting Guidelines within a Provincial - Municipal Relationship" PFSG 00-00-01 (attached as Appendix A) is an example of the guidelines that have been developed. Information within the background section of this document includes the following: "Municipalities are compelled to establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention. The act also states that municipalities are responsible for arranging such other fire protection services as they determine may be necessary according to their own needs and circumstances. The relationship between the province and municipalities is based on the principle that municipalities are responsible for arranging fire protection services according to their own needs and circumstances ". As referenced in this document, guidelines represent one component of the strategy that the Ministry of Community Safety and Correctional Services proposes for public fire protection in Ontario. The strategy referenced includes: • Clarifying municipal responsibility for local fire protection, while protecting the provincial interest in public safety. • Removing remaining legislative barriers which forestall the restructuring and reorganization of municipal fire services. • Facilitating a shift in focus which places priority on fireprevention andpublic education as opposed to fire suppression. • Providing municipalities with decision-making tools to help them provide services according to their own needs and circumstances. • Facilitating more active involvement of the private sector and other community groups in fire prevention and public education through the Fire Marshals Public Fire Safety Council. 2.2.2 PFSG 04-40-03 "Selection of Appropriate Fire Prevention Programs" PFSG 04-40-03 and 04-40-12 (attached as Appendix B) identifies the four minimum requirements of the FPPA Section 2. (1) (a) "establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention" including: 2.0 Legislation Page - 7 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 ✓ Simplified risk assessment; ✓ A smoke alarm program; ✓ Fire safety education material distributed to residents/occupants; and ✓ Inspections upon compliant or when requested to assist with code compliance. 2.2.3 PFSG 04-08-10 "Operational Planning: An Official Guide to Matching Resource Deployment and Risk" PFSG 04-08-10 (attached as Appendix C) was developed by the OFM to assist municipalities' in meeting their responsibilities under Section 2. (1) (b) "provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances" of the FPPA. As stated by the OFM in PFSG "04-08-10 Operational Planning: An Oficial Guide to Matching Resource Deployment and Risk": "The overall public safety objective of a municipality is to provide the community with an optimal level of fire protection. Fire suppression is one aspect of the three lines of defence; the other two lines are Public Education and Prevention and Fire Safety Standards and Enforcement. A municipality needs to evaluate its existing fire suppression capabilities to ensure that it is managing all fire risk levels within the community, responding to and addressing fires that occur, and meeting public and council expectations". 2.2.4 PFSG 01-02-01 "Comprehensive Fire Safety Effectiveness Model" (CFEM) PFSG 01-02-01 (Attached as Appendix D) was developed by the OFM to assist communities in evaluating their level of fire safety. The model recognizes that there is more to providing fire protection services than just building fire stations, purchasing equipment and deploying firefighters. The CFEM confirms that the fire service within Ontario is in a period of change. In response to increasing public expectations and diminishing financial resources municipalities are being forced to critically assess their fire protection needs in identifying new and innovative ways to providing the most cost effective fire protection services. The following is an excerpt from PFSG 01-02-01: "This model looks at community fire protection as the sum of eight key components, all of which impact on the fire safety of the community. Deficiencies in one of the components can be offset by enhancements in another component or components ". The CFEM identifies that every municipality should be guided by a master or strategic plan covering a planning horizon of five to ten years. Shifting from the traditional focus of hazard identification and fire suppression response the CFEM recognizes that more comprehensive risk assessment and optimizing the use of fire prevention and control systems are part of a paradigms shift within the fire service. Figure I below shows each of the factors which make up the comprehensive model. Although the chart is divided equally, each factor will in reality contribute differently to the total level of protection provided to a community. 2.0 Legislation Page - 8 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 1: Factors in a Comprehensive Fire Safety Effectiveness Model FIREGROUND EFFECTIVENESS INTERVENTION TIME BUILT-IN SUPPRESSION CAPABILITIES IMPACT OF FIRE FIRE PREVENTION PROGRAM EFFECTIVENESS ATTITUDE DETECTION FIRE RISK (Source: OFMPFSG 01-02-01) Figure 2 shows how the comprehensive model can be applied to a typical fire department. The "gap" depicts the difference between the existing level of protection and the ideal. Figure 2: Comprehensive Model applied to a typical Fire Department IMPACT OF FIRE FIRE PREVENTION PROGRAM . EFFECTIVENESS FIREGROUND EFFECTIVENESS INTERVENTION TIME BUILT-IN DETECTION SUPPRESSION CAPABILITIES ATTITUDE FIRE RISK (Source: OFMPFSG 01-02-01) Utilizing the framework of the CFEM and the fire protection service assessment processes developed by the OFM the primary objective of this FMP is to identify through evidence based analyses the presence of any existing gap in fire protection services within the Municipality of Clarington. 2.0 Legislation,„�� Page - 9 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report - February 2014 In response to any existing gaps identified this FMP recommends strategies that are intended to optimize the use of the "three lines of defence" including: L Public Education and Prevention IL Fire Safety Standards and Enforcement III. Emergency Response A further description of each line of defence includes: L Public Education and Prevention: Educating residents of the community on means for them to fulfill their responsibilities for their own fire safety is a proven method of reducing the incidence of fire. Only by educating residents can fires be prevented and can those affected by fires respond properly to save lives, reduce injury and reduce the impact of fires; II. Fire Safety Standards and Enforcement: Ensuring that buildings have the required fire protection systems, safety features, including fire safety plans, and that these systems are maintained, so that the severity of fires may be minimized, - III. Emergency Response: Providing well trained and equipped firefighters directed by capable officers to stop the spread of fires once they occur and to assist in protecting the lives and safety of residents. This is the failsafe for those times when fires occur despite prevention efforts. The CFEM emphasises the importance and value of preventing a fire. This is important from both an economic and public safety perspective, at the same time, ensuring an appropriate level of health and safety for firefighters. The model also recognizes that developing programs and providing resources to effectively implement the first line of defence (a proactive public education and prevention program) can be an effective strategy to reduce and potentially minimize the need for the other lines of defence. 2.2.5 PFSG 01-01-01 "Fire Protection Review Process" Analysing local circumstances is a core component of the fire master planning process. PFSG 01-01-01 (Attached as Appendix E) identifies the three main issues that define local circumstances including the guidelines to be utilized: ✓ PFSG 02-03-01 "Economic Circumstances " (Attached as Appendix F) ✓ PFSG 02-02-03 "Fire Risk Assessment" (Attached as Appendix G) ✓ PFSG 02-04-01 "Capabilities of Existing Fire Protection Services (Attached as Appendix H) Detailed analysis of these issues is included within this report to provide the background and rational to support the recommendations of this Master Fire & Emergency Services Plan. 2.3 Occupational Health and Safety Act The Occupational Health and Safety Act, R.S.O. 1990 (OHSA) requires every employer to, "take every precaution reasonable in the circumstances for the protection of the worker". The OHSA provides for the appointment of committees, and identifies the "Ontario Fire Services Section 21 Advisory Committee" as the advisory committee to the Minister of Labour with the role and responsibility to issue guidance notes to address firefighters -specific safety issues within Ontario. 2.0 Legislation,„�I Page -10 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Firefighter safety must be a high priority in considering all of the activities and services to be provided by a fire department. This must include the provision of department policies and procedures, or Operating Procedures (OPs) that are consistent with the direction of the OHSA Section 21 Guidance Notes for the fire service. The CEFS prioritises health and safety within the department. This includes participation on the corporate health and safety committee where members of the CEFS provide access to a broad spectrum of knowledge impacting all employees within the Municipality of Clarington. 2.0 Legislation Page -11 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 3.0 COMMUNITY RISK PROFILE The Office of the Fire Marshal, Ontario's (OFM) Fire Risk Sub -model' introduces the importance of community risk in the following paragraph: "Assessing the fire risk within a community is one of the seven components that comprise the Comprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing the relevant factors that characterize the community and applying this information to identify potential fire risk scenarios that may be encountered. The assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences." Community fire risks are further explained in detail within the OFM's Fire Risk Sub -model as follows: "The types of fire risks that a community may be expected to encounter are influenced by its defining characteristics. For example, a "bedroom community" presents a different set of circumstances over one that is characterized as an "industrial town". Communities that are distinguished by older buildings will pose a different set of concerns over those that are comprised of newer buildings constructed to modern building codes. Communities populated by a high percentage of senior citizens present a different challenge over ones with a younger population base. Assessing fire risk should begin with a review of all available and relevant information that defines and characterizes your community. Eight key factors have been identified that contribute to the community's inherent characteristics and circumstances. These factors influence events that shape potential fire scenarios along with the severity of their outcomes: • Property Stock • Building Height and Area • Building Age and Construction • Building Exposures • Demographic Profile • Geography/Topography/Road Infrastructure • Past Fire Loss Statistics • Fuel Load Utilizing the framework provided within the OFM's Fire Risk Sub -model provides the opportunity to assess the potential fire risk scenarios that may be present by creating a Community Risk Profile. The profile can then be used to assess the current level of fire protection services provided, and identify where if any potential gaps exist, or areas that a municipal Council may want to consider in determining its own needs and circumstances as defined by the FPPA. 1 Source: Comprehensive Fire Safety Effectiveness Model, Fire Risk Sub -Model, June 2009 Office of the Fire Marshal, Ontario 3.0 Community Risk Profile Page -12 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 This section contains a summary of the observations from each of the categories contained within the community risk profile and assessment. The detailed Community Risk Profile is contained within Appendix L 3.1 Summary of Community Risk Profile The Fire Master Plan process included a Community Risk Profile (Appendix I). The following summarizes the results of the assessment. • Data provided by the OFM supports addressing residential fire risk as a key priority, as residential fire losses accounted for 71% of all structure fire losses between 2007 and 2011. Property stock in Clarington is overwhelmingly "Group C" residential (97%). Residential single -detached housing units represent 79.3% of the 29,865 residential dwelling structures. • Although the majority of new residential building stock includes flame retardant materials and construction techniques, 35.3% of the Municipality's residential buildings were built prior to 1981 and have a higher fire loss risk due to age and construction. • Tall or large buildings can present a greater fire risk loss or life safety concern. Few buildings in Clarington are over five storeys; however, there are significant large industrial and commercial buildings, including the downtown core of Bowmanville, Darlington Nuclear Generating Station, St. Mary's Cement and Lakeridge Health Bowmanville. • Demographics can impact fire risk, as some members of the population may be more vulnerable due to mobility challenges, language barriers or other factors. Clarington's demographics generally reflect those of the province. The percentage of seniors in Clarington is slightly less than Ontario as a whole (12.1% vs. 14.6%, respectively). The assessment identified several high risk buildings with vulnerable populations. • The analysis of the past fire losses within the Municipality of Clarington indicates that Group C - Residential occupancies represent the highest level of risk within the community. • The population of Clarington is expected to increase by 30% over the next 10 years, accommodated primarily in Bowmanville, Courtice and Newcastle. Major infrastructure projects are planned or under construction, including the expansion of Highway 407 to Highway 35/115, Darlington Nuclear refurbishment and Durham Region's Energy from Waste facility. This Fire Master Plan uses the results of the Community Risk Profile to inform recommendations for improved fire service in the community. Enhancing the first two lines of defence, including pro -active prevention and education programs and fire inspections and enforcement, targeted at the areas identified within this Community Risk Profile, is considered a priority of this Fire Master Plan. 3.0 Community Risk Profile Page -13 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 4.0 ADMINISTRATION DIVISION Under the leadership of the Fire Chief, Clarington Fire and Emergency Services has a history of successfully providing fire protection and prevention services to community the through the use of both full-time and volunteer firefighters, operating from five fire stations located across the Municipality of Clarington. The Administration Division consists of the Director of Emergency and Fire Services / Fire Chief, two Deputy Fire Chiefs supported by administrative personnel. This division, and ultimately the Fire Chief, oversee and monitor the resources and operations of all of the divisions in the department. The Administration Division operates from CEFS Headquarters, located at 2430 Highway 2 in Bowmanville. 4.1 Vision and Mission Statements The CEFS is guided by the following Vision: "We are dedicated to afire safe community" The Mission Statement is as follows: "To ensure we deliver service excellence through public education, prevention, training and emergency response. " CEFS has a Value Statement, as follows: "Every member of Clarington Emergency & Fire Services upholds the tradition of a composite department and with their skill and knowledge respond without boundary. " 4.0 Administration Division „n Page -14 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 4.2 Department Organization and Staffing The CEFS employs 193.5 staff assigned to various positions and divisions, as listed in Table 1. Table 1: Clarington Fire & Emergency Services Staffing Position / Division #Full -Time Staff #Volunteer Staff Corporate Strategic, Emergency Preparedness and Administrative Services Fire Chief 1 Deputy Chief 2 Administration Staff 2.5 Fire Prevention and Public Education Fire Prevention Officer 1 Fire Prevention Inspectors 3 Fire Suppression and Emergency Response Firefighters 52 (includes 8 full-time Captains) 125 - (includes 5 District Chiefs and 20 Captains) Junior Firefighters (Students) 4 Training and Development Senior Training Officer 1 Training Officer 1 Maintenance and Support Maintenance — Departmental 1 Communications Transferred to Oshawa in early 2013 0 Total Staffing: 64.5 125 4.2.1 Divisions and Organization The CEFS is currently organized into the following divisions: • Administration; • Maintenance Support; and • Fire Prevention and Public Education; • Training and Development. • Fire Suppression and Emergency Response; 4.0 Administration Division Page -15 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 The reporting structure associated with these divisions is shown in Figure 3. Figure 3: Clarington Emergency and Fire Services Organizational Structure Clarington Emergency and Fire Services F•,mcrgency Corpontc Preparedness � -+ Stnragic Deputy Chief Administrative S—i­ Deputy Chief Administrative Assistant Clerk Maintenance I I Training & Fire Suppression & EmergencyDispatch Fire Prevention & 'ng Emergency Response & Communications Public Education support Dcvel ment Mechanical Fire Prevention Technician Officer Senior Training 5Volunteer 8Full Time Once, District Chiefs Suppression Captains 3 Frre Inspector Training 7A Volunteer Oar Captains 44 Full Timc Suppression Firefiglue. 100 Volunteer Firefighter It is recommended that the current organizational model be reviewed and revised to balance the workload between the two Deputy Chief positions and to pair complementary divisions under each supervisor. Previously, the Deputy Chief roles were divided into the Deputy Chief of Operations and the Deputy Chief of Administration. The current organizational chart divides the Suppression Division between the two Deputy Chief positions, with one overseeing the volunteer suppression staff and the other overseeing the full-time suppression staff. CEFS should consider keeping the entire division reporting to the same Deputy Chief for consistency and efficiency, which would be comparable to maintaining a `Deputy Chief of Operations' role. As well, the `Emergency Dispatch and Communication' responsibilities have changed with the transfer of dispatching services to the City of Oshawa in early 2013. The organizational chart should be updated to reflect this change. The Training Division and Public Education (under Fire Prevention and Public Education Division) are often paired under the same supervisor, as the education components are complementary. Currently, the Fire Chief is involved in the day-to-day operations of the activities within all divisions. This tends to increase the workload of the Fire Chief and can draw him away from the corporate strategic focus, which is where an increased part of his expertise should be applied. 4.0 Administration Division Page -16 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 4.3 Administration Team 4.3.1 Department Management Team There are three senior management personnel within CEFS: the Fire Chief and two Deputy Fire Chiefs. Senior management is responsible for the overall management of emergency response, emergency planning, fire prevention and education, training suppression, and community emergency management. The Fire Chief is ultimately responsible to Council as defined within the FPPA. Through the Fire Chief, the department's management team will: • Provide leadership; • Develop staff, • Promote effective labour relations; • Promote and facilitate effective public communications; • Ensure department services and programs are developed and implemented; • Establish and implement department planning processes; • Develop multi-year financial plans; • Administer corporate finance management systems; • Ensure appropriate interpretation and application of legislation, standards, codes and by-laws; • Ensure incident command and / incident management systems are implemented at emergency scenes; and • Advise Council on strategic issues and risks associated with emergency and related services. The management team provide direction to the department through the Chain of Command indicated in CEFS policy. The Chain of Command is shown in Figure 4. Figure 4: CEFS Chain of Command Full-time Firefighter Full-time ' Captain Fire Prevention Fire Deputy Inspector Chief Fire Chief Volunteer d Volunteer Volunteer District Chief Captain Firefighter 4.0 Administration Division Page -17 D i LLON Municipality of Clarington Fire Master Plan Final Report — February 2014 4.4 Administrative Services An administrative assistant and department clerks (one full-time position and one part-time position as of June 2013) provide administrative support to the CEFS management team. The administrative staff: • Provide clerical administration of CEFS records; • Conduct research and analysis as directed; • Assist with attendance management; • Maintain CEFS staffing schedules; • Manage training records; • Input inspection records; • Administer shipping, receiving and invoicing payment; • Administer volunteer payroll; and • Administer open air burning permits. The management team is currently at capacity with workload. Considerations should be given to whether there are additional tasks which could be downloaded to administrative support. This should also be considered for the divisional lead positions as well (e.g. Training Officer, Fire Prevention Officer, etc.). Additional administrative support may be required to support these functions; however, it would allow the management team to operate more efficiently and effectively on their areas of speciality. Within this report are recommendations regarding increasing the number of full-time and volunteer staff within the CEFS. Additionally, recommendations are included to increase the number and frequency of fire prevention and public education activities. These recommendations may impact the required administrative support, through increased data entry for inspections, additional public education material preparation, additional volunteer payroll to process and additional training records to maintain. The amount of administrative support and staffing resources should be continuously reviewed and monitored as these recommendations are implemented to ensure sufficient support is provided. It is expected that the part-time Clerk position should be increased to a full-time position within the short-term horizon of this plan (one to three years) to meet these increased administrative demands. 4.5 Administrative Workspace Workspace for senior management and administrative personnel is located at headquarters, Bowmanville Station 1, 2430 Highway 2. Work stations are provided for the administrative assistants assigned to the division. The current space allocation for administration, fire prevention and training staff is limited in its ability to support any further expansion. 4.0 Administration Division Page -18 D I LLON CONSUI.:I-INC: Municipality of Clarington Fire Master Plan Final Report — February 2014 In response to these needs the CEFS retained professional services to assess the current administrative workspace and develop a plan for improvement. This work is currently underway with completion scheduled early in 2014. Our analyses indicates that there is some current capital funding allocated to implement improvements to this workspace, however, once detailed cost estimates are completed a further review of the capital financing requirements will be necessary. 4.6 Annual Report The CEFS prepares an annual report summarizing the year's activities, challenges and accomplishments. The reports are organized by division. The annual reports are a valuable communications tool to inform Council and the community about the status, performance and achievements of the department. We support the continued annual completion by the CEFS. This is an example of an area where additional administrative support could provide additional assistance to the management team and divisional leads. 4.7 By-laws & Agreements 4.7.1 By-laws The Municipal Act, Revised Statues of Ontario (R.S.O.) 2001 requires a municipality to enact a number of by-laws to operate a municipality and specifically their fire services. In addition to meeting this legislative responsibility, by-laws provide the community with important information with regard to the level of service that a municipality intends to provide. By-laws also provide municipal staff with the authorization to provide these services as well as the responsibility to achieve the prescribed service level. Our review of the existing by-laws approved by the Municipality of Clarington indicates that all required by-laws are in place. Ensuring these documents are regularly reviewed and updated to reflect any changes in service level or changes in authority are important functions. Our review indicates that regular reviews occur and by-laws are updated as required. The Establishing and Regulating By-law (By-law 2010-077) establishes and regulates the CEFS. The by- law describes the department's core services. It also regulates the provision of Mutual Aid and Automatic Response. Currently, the Establishing and Regulating By -Law lists the core services of CEFS as: 1. Fire Suppression and Emergency Response; 2. Fire Prevention; 3. Fire Safety Education; and 4. Emergency Dispatching and Communications. With the transfer of dispatch services to the Oshawa Fire Services, discussed below in Section 4.7.5 Communications Services Agreements, "Emergency Dispatching and Communications" is no longer a core service of the CEFS. The core service of "Emergency Management Program Delivery" should be added to the list of core services, as per the core services listed within the CEFS 2007-2010 Business Plan. As well, the current Establishing and Regulating By -Law does not provide details with regard to performance targets. It is recommended that, subject to the approval of this IMP, the current Establishing and Regulating By -Law be updated to reflect the updated core services and include the performance targets recommended within this report. 4.0 Administration Division Page -19 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 4.7.2 Mutual Aid Agreements Mutual aid agreements are predetermined plans that allow a participating fire department to request assistance from a neighbouring fire department. Public Fire Safety Guideline (PFSG 04-05-12) provided by the OFM identifies the information required to develop and approve these agreements. There are two main scenarios when mutual aid agreements are enacted: 1. When a fire department is on -scene at an emergency, has received information that immediate assistance is required, it may ask for mutual aid assistance from a neighbouring fire department. 2. Where distance and/or conditions are such that a neighbouring fire department could provide a more timely response, fire departments may immediately request a simultaneous response from a participating fire department. Our review indicates that the CEFS is an active participant in the "Mutual and Automatic Aid Plan and Program for the Region of Durham". This includes the regular review and update of the plan and participation in providing assistance to a neighbouring municipality should it be requested. As outlined within by-law 2010-077, the CEFS is authorized to leave the limits of the CEFS fire area at the discretion of the Fire Chief, under the direction of the Region Fire Co-ordinator, to respond to calls for assistance from other fire departments authorized to participate in the Durham Region Mutual Aid Fire System or any other Regional Mutual Fire Aid System or a reciprocal basis. This agreement appears to be serving the Municipality well. 4.7.3 Automatic Aid Agreements In contrast to mutual aid agreements, automatic aid agreements are programs designed to provide and/or receive assistance from the closest available resource, irrespective of municipal boundaries, on a day-to- day basis. The obvious advantage of implementing an automatic aid program is the person experiencing the emergency receives fire services from the closest available provider by supplying seamless service through the elimination of artificial service boundaries. Some of the additional benefits that an automatic aid agreement provides include: • an enhancement of the level of public safety; • a reduction of the critical element of time between the commencement of a fire and the application of an extinguishing agent to the fire by dispatching the closest available assistance; • the reduction of life, property and environmental losses; and • the improvement of public and fire-fighter safety. As described above, the CEFS is an active participant in the "Mutual and Automatic Aid Plan and Program for the Region of Durham". The Establishing and Regulating By-law (2010-077) includes policies related to Automatic Aid, in particular with Port Hope and Oshawa. Due to the nature and restricted access of Highway 401 it is often faster for another municipality's fire service to respond into a neighbouring municipality's area. These agreements reflect this situation within the Municipality of Clarington and its neighbouring municipalities: the City of Oshawa and the Town of Port Hope. 4.0 Administration Division Page - 20 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 The agreement with the Town of Port Hope was signed in September of 2001. It sets the terms of reciprocal aid on Highway 401 between Wesleyville Road and Newtonville Road, where Clarington requires response support on the westbound portion of the highway and the Town of Port Hope requires response support on the eastbound portion of the Highway within the defined section. CEFS also provides automatic aid to the Ontario Power Generation (OPG) facility located within the Municipality through a memorandum of understanding. The Fire Chief liaises with OPG on an ongoing basis to ensure the services provided and the agreements in place meet the needs of both parties involved. Under the leadership of the Fire Chief and department management team the CEFS benefits from the strategic utilization of automatic aid agreements and partnerships with other agencies. The analyses within this review have identified two additional opportunities to improve the delivery of fire protection services within the Municipality of Clarington. These include; 1. Technical Rescues: Technical rescues relate to emergency responses requiring a high degree of training and expertise in a specific area such as hazardous materials. These types of responses are low in probability of occurring but very high in the risks associated with conducting the rescue and ensuring a high degree of safety for responding firefighters. The CEFS currently provides these services at varying degrees of service level. As the largest fire service in Durham Region the Oshawa Fire Services (OFS) has developed a high degree of proficiency and competency in Technical Rescues. The 2012 OFS Fire Master Plan includes a recommendation that the OFS promote the development of automatic aid agreements for the provision of Technical Rescue services based on full cost recovery. Pursuing a partnership with the OFS to provide specialized technical rescues such as HAZMAT, rope rescue, high angle rescue, confined space rescue and water rescue further supports the strategic delivery of cost effect and efficient fire protection services within the Municipality of Clarington. This strategy is recommended as a priority for the CEFS. 2. Courtice Response Area: Section 6.10 of this report includes analyses of additional benefits that could be achieved through expanding or creating additional automatic aide agreements. The Courtice response area is identified as an area where the closest fire station, the City of Oshawa - Fire Station 5 is able to reach a large portion of the Courtice urban area in eight minutes or less of travel time. Assessing the analyses of this area and consideration of expanding the current automatic aide agreement with the City of Oshawa is recommended. 4.7.4 Medical Tiered Response Agreement The CEFS assists Durham Emergency Medical Service (EMS) through a Durham Region Medical Tiered Response Agreement. The current agreement identifies that the CEFS will respond to the following medical related emergency requests for service: • Respiratory Arrest • Cardiac Arrest 4.0 Administration Division Page - 21 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Unconsciousness • Motor Vehicle Collision with EMS attending • Profuse and Uncontrolled Bleeding • Acute Chest Pain and/or shortness of breath/difficulty breathing The participation of fire departments in responding to medical related emergency calls has come under a significant amount of scrutiny across the province. It is not uncommon for medical related emergency calls to comprise over 50% of the total number of emergency calls that a fire department responds to on an annual basis. During the period from 2008 to 2012 medical related calls comprised 51% of the emergency calls to which the CEFS responds. Municipalities are looking for the appropriate balance between where the fire department can provide services that positively impact patient outcomes and enhance the overall medical intervention, and where duplication of services or the participation of the fire department are not positively impact patient outcomes. The notification process for fire department response, availability of land ambulances services, and travel distances are all factors that need to be considered. The large geographic size of the Municipality of Clarington and the availability of land ambulances services are factors that may lend to a decision of providing varying levels of medical response depending on the area within the municipality. These factors support a review of the current tiered response agreement and the development of options for Council's consideration in determining the appropriate level of participation by the fire department in providing medical related emergency response. This Fire Master Plan recommends that the Fire Chief review the current medical tiered response agreement in consultation with the Durham Emergency Medical Service in defining options for Council's consideration in providing fire department medical related emergency response. 4.7.5 Communications Services Agreements As of January 15th, 2013, Oshawa Fire Services' Communication Division provides, by service agreement, communications services to the CEFS. The completion of the `Next Gen' Regional Communications Interoperability Project is expected in summer 2014. This agreement resulted in the transfer of responsibility for the services of `Emergency Dispatching and Communications' from CEFS to the Oshawa Fire Services. This review supports the provision of services through this service agreement as a practical and cost-efficient strategy. Best practices in Ontario for the provision of emergency call taking and dispatching reflects the use of the National Fire Protection Association (NFPA) "1221 Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems" as the guideline for provision of services. The current agreement should be reviewed to ensure it includes a performance measures for call taking and dispatching, such as those contained in the NFPA 1221 standard. 4.7.6 Other Agreements The CEFS participates in a `Joint Ownership and Usage' agreement with the City of Oshawa, Town of Whitby and the Board of Governors of the Durham College of Applied Arts and Technology (Durham College) regarding a propane fire training device. In our view this agreement reflects the commitment to partnership development and the desire to provide the most cost effective services in the most efficient way possible. 4.0 Administration Division Page - 22 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 4.8 Capital and Operating Budgets The Fire Chief is responsible to Council for capital and operating budgets, assisted by the Deputy Chiefs and others as required. The 2013 capital budget was $1,322,845 and the 2013 operating budget was $49,000 in revenue and $10,718,857 in expenditures. 4.8.1 Development Charges The Municipality of Clarington collects and administers development charges in compliance with the Development Charges Act, 1997 (DCA). The current development charges By -Law 2010-058 includes the collection of fees for fire protection as identified in Table 2. Table 2: Municipality of Clarington 2014 Development Charges Rates By -Law #2010-058 AL L Non- Non - Residential Residential Residential (4.44%) Excluding — Industrial Industrial (6.19%) (12.17%) Commercial Industrial $ Single/Semi Low Density Institutional z Service &Link Multiple Apt (L) Apt (S) $ Perm 2 per m Gross Floor Gross Floor G Fire Protection Services / $691.09 $601.98 $474.90 $301.08 $3.95 $3.95 Emergency Services Eligible categories for inclusion in the collection of development charges are fire stations and firefighting apparatus (including rescue vehicles, pumpers, and aerial devices). Small equipment and protective gear are also eligible. In recent years the definition of small equipment and gear has been cause for much discussion within the industry. This discussion has been led by Fire Chiefs identifying the high initial capital costs and direct relation of this small equipment and gear to the overall operational functional capability of a fire station and the fire department. Growth related capital costs are highlighted within the implementation plan of this IMP in Table 20 in Section 12.0. 4.0 Administration Division Page - 23 DILL 3N CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 More recent development charge reviews have included consideration of the equipment assigned to the apparatus and station as being within the definition of equipment. Given the escalating costs of equipment such as, Self -Contained Breathing Apparatus (SCBA), hose, auto extrication equipment, and equipment such as portable pumps this is an important consideration. Including firefighter protective clothing (bunker gear) has also been identified as a consideration. It is also relevant to consider equipment that is "fixed" to the fire station such as SCBA air filling and air compressor systems that can cost in excess of $100,000. Hemson completed a Development Charges Background Study in 2010 that informed the adoption of By - Law 2010-058. The study reflected input from the previous fire master plan and identified DC eligible items including stations (e.g. the new fire station in Newcastle), facility expansions, apparatus, and equipment. It is recommended that future reviews of the development charge by-law consider recommendations in this Fire Master Plan. 4.9 Departmental Policies and Procedures The CEFS has a policy that outlines a `Statement of Intent' indicating that every member of the department has a responsibility to learn and understand the information included within the policy and guideline manual. The Statement of Intent defines Policies and Guidelines as follows: Policy - a principle adopted by management, based on department rules & regulations, municipal law, provincial law, federal law or standards which clearly identifies responsibility. Guideline - a written series of suggested actions arranged in a manner and designed to achieve an intended outcome through guiding the performance or behavior of staff, whether functioning alone or in groups which clearly identifies responsibility. Best practices within the Ontario fire service reflect the use of department policies as the appropriate tool to communicate specific direction to all staff. In comparison to standard operating guidelines, which provide a framework to guide decision making, department policies reflect more stringent and defined practices that minimizes variance from the directive given. Standard Operating Guidelines (SOGs) are used within the fire service to establish a written statement to guide the performance or behaviour of departmental staff, whether functioning alone or in groups. SOGs are intended to: • enhance safety • increase individual and team effectiveness • improve training efficiency • improve orientation for entry-level staff • improve risk management practices • prevent / avoid litigation • create objective post -incident evaluations • permit flexibility in decision making The department has a set of combined "Policies and Operating Guidelines" to clearly identify the expectations and processes for staff to follow. These are divided into the following categories: 4.0 Administration Division Page - 24 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Administrative • Communications • Apparatus/Equipment • Fire Prevention & Public Education • Operational • Safety • Station Operation • Training The current set of policies and guidelines are well-developed. Additional policies and guidelines should continue to be developed to address the activities, services and daily operations of all divisions of the CEFS. This will include developing additional policies and operating guidelines relating to training, fire prevention and public education. All CEFS policies and operating guidelines should be reviewed annually to ensure they accurately reflect the present day conditions and legislation. 4.10 Promotions and Succession Planning 4.10.1 Promotional Process Prerequisites and procedures for the promotional process are detailed in an agreement attached to the Clarington Fire Fighter's Association Collective Bargaining Agreement (CBA). Criteria are reviewed and amended annually under agreement between the parties. Policies 2-9-P, "Promotion — Volunteer Ranks" and 2-10-P, "Promotion — Fulltime Ranks" describe the promotional process within the CEFS. There are no specific criteria for promotion within the Fire Prevention Division. Within the Fire Training and Fire Suppression Divisions promotions are addressed as described in the CBA. Volunteer staff promotions to Officer are detailed on a point system distributed in the form of a memo. 4.10.2 Succession Planning In our view, Ontario fire services and municipalities have only recently recognized the importance and priority that succession planning should have within municipal fire services. An effective succession plan requires the implementation of strategies to ensure that opportunities, encouragement and additional training are available for staff considering further advancement. A comprehensive succession plan also supports the concepts of coaching and mentoring in support of staff considering future career opportunities. The CEFS identified that, other than the Company Officer Program and Certification Program, fire service specific functions training courses directed to leadership, mentorship and succession planning are limited. The Training Division prepared some information, reading assignments and training session in an attempt to bridge the gap as an interim measure, however additional programming is required. Volunteer officers are trained in-house only, facilitated by the Training Division. 4.0 Administration Division Page - 25 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 An additional form of succession planning includes experience gained from positions with supervisory roles. Within the discussion of suppression staffing below, it is recommended that CEFS consider adding an on -duty Senior Captain position to increase the span of control and provide the management team with additional supervisory/operational support 24 hours a day, seven days a week. This is recommended to be accomplished through promotion of four of the existing Captains. This position would provide support to the Deputy Chief overseeing the Suppression Division and would further develop leadership and supervisory skills and succession planning within the department. It is also recommended that Acting Captain positions be implemented within each station's complement of volunteers to improve span of control and enhance succession planning within the department. 4.11 Records Management Clarington Emergency & Fire Services maintains both electronic and hard -copy records. The CEFS electronic records management is primarily organized within the CriSys Xpert Fire Software system. The program includes modules for data reporting, personnel management, equipment management and fire prevention. This includes training records, fire prevention inspections, attendance management records, call data and public education programs. Administrative personnel assist with the data entry and overall records management. Computer stations and internet connections are provided at all five fire stations for the suppression staff to enter call details into the records management system. Historically the CEFS maintained hard copies of all training records. The department has now transitioned to the use of electronic records management of all training records. During the review of the records management process discussion was held with the CEFS management team in regard to the impacts of Presumptive Disease Legislation. As a result the Fire Chief will be conferring with the appropriate municipal staff in regard to the retention of training and other department records in relation to this legislation. Fleet and maintenance records are managed by the Mechanical Technician, who keeps hard copy maintenance records for all equipment. Record-keeping practices are described in Apparatus/Equipment" Policies and Operating Guidelines. Based on our analyses, CEFS has input a significant investment of staff training and software costs into the CriSys records management system. Therefore it is recommended that this system be used for all possible areas of records management to maintain consistency and optimize the use of the software and the efficiency of data management. 4.12 Emergency Preparedness The Fire Chief is the Community Emergency Management Coordinator for the Municipality of Clarington and as such is responsible to develop, maintain and implement the Municipal Emergency Management Program. The Municipality of Clarington has an Emergency Plan, last updated in November 2012. The purpose of the emergency plan is to "prescribe the planning and operational requirements for the strategic management of an emergency directly or indirectly affecting the municipality." The scope of the plan includes actions to be taken in response to emergency situations that require more than routine response by local emergency services. This Fire Master Plan establishes a framework for an effective system of emergency management to accomplish the following specific purposes: • To reduce the vulnerability of residents to the loss of life, to the loss of infrastructure, or to the adverse health effects resulting from a natural or a human -caused event; 4.0 Administration Division Page - 26 D I LLON Municipality of Clarington Fire Master Plan Final Report — February 2014 • To ensure the preservation of essential municipal services and the local economic base within Clarington; To prepare for prompt and efficient response and recovery activities for the protection of the lives, property, and infrastructure effected by the emergency; To respond to all emergencies using all existing systems, plans, and resources necessary to preserve the health, safety and welfare of residents affected by the emergency. Our review indicates that the Municipality of Clarington's Community Emergency Program and Emergency Plan meets the requirements of the applicable legislation (Emergency Management and Civil Protection Act, R.S.O., 1990). 4.12.1 Community Emergency Management Coordinator The Fire Chief is the Municipality's Community Emergency Management Coordinator (CEMC). The organizational structure and reporting process for the Municipality's Emergency Planning is shown in Figure 5. The CEMC is responsible for the development and implementation of the emergency management program consisting of emergency plans, training programs, exercises for Municipal employees and partner agencies, public education on risks to public safety and public preparedness for emergencies, and any other elements required as prescribed in the Emergency Management and Civil Protection Act, R.S.O., 1990, Chapter E.9. The CEMC reports to the Chief Administrative Officer. The CEMC is also responsible on a day-to-day basis for the coordination of plans and procedures for Municipality of Clarington departments. Plans to re -locate and improve the function of the Emergency Operations Centre are currently underway. Consideration could be given to assigning one of the Deputy Chiefs as the CEMC and assigning the Fire Chief and other Deputy as alternate CEMCs. Additionally, some of the administrative tasks related to emergency planning could be supported by municipal staff in other departments. This could potentially reduce some of the existing workload of the CEFS Management Team. 4.0 Administration Division Page - 27 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 5: Municipality of Clarington Emergency Planning Structure and Organization (from Emergency Plan, Figure 1) COMMUNITY EMERGENCY MANAGEMENT PROGRAM COMMITTEE 4.3 SUB -COMMITTEES & WORKING GROUPS 4.4 COUNCIL CHIEF ADMINISTRATIVE OFFICER COMMUNITY EMERGENCY MANAGEMENT COORDINATOR 4.2 EMERGENCY OPERATIONS CENTRE 4.5 EMERGENCY SITE MANAGAMENT 4.8 FIRST RESPONDERS 4.10 4.13 Administration Division Recommendations PROVINCIAL EMERGENCY OPERATIONS CENTRE 4.7 REGIONAL EMERGENCY OPERATIONS CENTRE 4.6 EMERGENCY INFORMATION & INQUIRY 1 MEDIA CENTRE 4.9 Under the leadership and direction of the Fire Chief and the two Deputy Chiefs, the Clarington Fire & Emergency Services is providing effective and efficient fire protection services to the Municipality of Clarington. As a result of the review of the Administration Division, it is recommended: 1. That CEFS regularly review and revise the administrative organizational model to balance the workload and to assign complementary divisions within the span of authority of the respective supervisor. 2. That CEFS continuously reviews and monitors the amount of administrative support and staffing resources required as the FMP recommendations are implemented to ensure sufficient administrative support is provided. Within the short-term horizon (one to three years) of this FMP consideration should be given to incrementally increasing the part-time clerk position to a full-time position. 3. That CEFS complete the ongoing administrative work space assessment for Station 1 including the financial analyses and capital funding requests to implement the recommended workspace improvements. 4. That CEFS continuously review and update (as required) the current Establishing and Regulating By -Law to reflect the proposed service levels, including the performance targets recommended within this FMP. 4.0 Administration Division Page - 28 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 5. That CEFS review the Fire Services Dispatch Agreement with Oshawa Fire Services and revise to include performance measures for call taking and dispatching, such as those contained in the NFPA 1221 standard. 6. The CEFS prioritize the development of a partnership/automatic aid agreement with Oshawa Fire Services to provide specialized services such as HAZMAT, rope rescue, high angle rescue, confined space rescue and water rescue. 7. That CEFS investigate enhancing the current automatic agreement with Oshawa Fire Services for responses into Courtice. 8. That CEFS review the current medical tiered response agreement in consultation with the Durham Emergency Medical Service in defining options for Council's consideration in providing fire department medical related emergency response. 9. The CEFS consider additional supervisory roles within the department's organizational structure to improve department succession planning. 10. That future reviews of the development charge by-law consider the recommendations within this FMP. 11. That additional policies and guidelines be developed to address the activities, services and daily operations of all divisions of the CEFS (e.g. additional policies and operating guidelines relating to training, fire prevention and public education). 12. That all CEFS policies and operating guidelines be reviewed annually to ensure they accurately reflect the present day conditions and legislation, which are subject to regular changes. 13. That the existing records management software (CriSys) be used for all possible areas of records management to maintain consistency and optimize the use of the software and the efficiency of data management. 14. That consideration be given to assigning one of the Deputy Chiefs as the CEMC and assigning the Fire Chief and other Deputy Chief as alternate CEMCs. Additionally, some of the administrative tasks related to emergency planning could be supported by municipal staff in other departments. 4.0 Administration Division Page - 29 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 5.0 FIRE PREVENTION & PUBLIC EDUCATION The Clarington Emergency & Fire Services carries out fire prevention enforcement and public fire safety education programs, within the guidelines of the Fire Protection and Prevention Act, 1997 (FPPA). Under the FPPA, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. " The Office of the Fire Marshal, Ontario (OFM) describes the minimum requirement for a community fire safety program as including: • a smoke alarm program with home escape planning; • the distribution of fire safety education material to residents/occupants; • inspections upon complaint or when requested to assist with code compliance (including any necessary code enforcement); and • a simplified risk assessment. 5.1 Comprehensive Fire Safety Effectiveness Model The Fire Prevention Division is responsible for coordinating the initiatives of the CEFS to optimize the impact of applying the first two lines of defence identified within the Ontario Fire Protection Model, including: ✓ Public Education and Prevention ✓ Fire Safety Standards and Enforcement ✓ Emergency Response Best practices of other municipalities within the province have shown that optimizing the efforts dedicated to these lines of defence can have a positive impact on mitigating emergency call volume, and increasing the overall level of fire protection within the community. Focusing the resources and programs targeted at the first two lines of defence, including adopting regular fire inspection cycles and broadening the scope of public education programming, reflects a more proactive model of community fire risk management, as opposed to the more traditional reactive model of relying on suppression resources and emergency response. The CEFS have done well in providing a proactive fire prevention/public education program utilizing existing resources. The Community Risk Profile identifies areas such as residential dwellings where the expansion of existing programs or development of new programs will be required to sustain the proactive strategy the department has adopted. 5.2 Staffing The Fire Prevention Division consists of one Fire Prevention Officer (FPO) and three Fire Prevention Inspectors (FPIs). One of the Deputy Chiefs oversees and is responsible for the division. Suppression staff assists with education and inspection duties. The current reporting structure of the division is shown in Figure 6 Policy No. 2-38-P, Fire Prevention Staffing, requires that a minimum of one FPI be on -duty during regular business hours (07:30 to 17:30) Monday and Friday. Two are required during regular business hours Tuesdays, Wednesdays and Thursdays. 5.0 Fire Prevention & Public Education Page - 30 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 6: Current Reporting Structure of the Fire Prevention Division Public Education Fire Prevention Officer Racing Against Drugs Municipal Festivals Smoke Alarm Program Junior Firefighter Program Family Safety Day Fire Prevention Week Fire Station Visits Plans Approval Licensing/Permits Deputy Fire Chief - Code Enforcement J Fire Prevention Inspector �-� Pre -Plan Project Fire Prevention Inspector �-� Community Projects Fire Prevention Inspector �� School Program Social Media Suppression Staff 5.0 Fire Prevention & Public Education Page - 31 / DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 5.3 Key Functions The primary goal for fire prevention is to minimize the impact of fire risks and to decrease the threat of fire incidents. The Establishing and Regulating By -Law includes the following description of "Core Services" provided by the CEFS. • Fire Prevention o 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. o New construction inspections and plan reviews of buildings under construction in matters respective of fire protection systems within buildings shall be conducted in accordance with the applicable by-law and operating procedures. • Fire Safety Education o 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 Division. o A residential Smoke Alarm program shall be ongoing. 5.4 Fire Prevention and Public Education Activities The current fire prevention and public education efforts of the department are focused on the first two lines of defence of the Comprehensive Fire Safety Effectiveness Model. These include the delivery of public education and fire prevention programming and activities related to fire safety standards and enforcement. An overview of these programs and activities are included below. 5.4.1 Public Education and Awareness Programs The CEFS acknowledges the benefits and importance of providing fire and life safety public education programming to the Municipality's residents. Programs and activities include but are not limited to: • School Program (Grade 1 and Grade 5 students) • Fire Safety Trailer & Hazard House • Alarmed for Life • Racing Against Drugs • Displays at Municipal festivals / public events • Junior Firefighter Program • Think Ahead Program • The Arson Prevention Program for Children (TAPP-C) - (by request) • Family Safety Day • Fire Prevention Week 5.0 Fire Prevention & Public Education Page - 32 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Fire Station Visits • Older and Wiser / Remembering When (by request) As shown in Table 3, the CEFS conducted 165 public education activities in 2011. Division personnel continuously evaluate these programs to ensure they meet the needs of the community. Past fire incident causes and owner/resident behaviours are reviewed to determine if additional education programs are required to address specific community risks. Staff members also consider the need and viability of offering seminars to targeted groups. Table 3: Public Education Programs Delivered (2010-2011) Activity 2011 2010 PUBLIC EDUCATION PROGRAMS Station Tours 32 50 School Visits 13 19 Fire Safety House Visits 12 11 Public Events 43 20 Safety Lectures 51 10 Fire Extinguisher Training 8 9 Fire Truck Visits 6 19 165 138 Source: Clarington Emergency & Fire Services 2011 Annual Report As indicated within this report, best practices of other municipalities has proven that expanding and enhancing public education efforts can be an effective strategy to mitigate emergency call volumes and increase the overall level of fire protection. This is also supported by the OFM with the current direction to emphasize the first two lines of defence across the fire services of all municipalities within the Province of Ontario. Within a composite department relying on a dedicated force of volunteer firefighters, such as CEFS, managing and where possible reducing emergency call volume can have a positive impact on the sustainability of the volunteer model. 5.0 Fire Prevention & Public Education Page - 33 DILLON CONSUI:I'ING Municipality of Clarington Fire Master Plan Final Report — February 2014 5.4.2 Public Education Performance Measures Establishing key performance measures for public education programs can assist Council in their ongoing role to monitor the overall effectiveness and efficiency of the department. The FPPA identifies that the minimum requirements of a Community Fire Safety Program, must include: ✓ a smoke alarm program with home escape planning; ✓ the distribution of fire safety education material to residents/occupants Table 4 provides a comparison of the CEFS's existing public education programs with best practices for comparable municipalities. In our view the recommended public education targets are appropriate for the CEF S. This Fire Master Plan recommends that Council adopt the recommended performance targets identified in Table 4 and include them in the CEFS Establishing and Regulating By -Law. Table 4: Public Education Performance Targets 5.0 Fire Prevention & Public Education Page - 34 D I LLON CON "1;1 .1 ING Recommended Activity Existing Education Education Program Frequency Target Frequency Performance Measure Elementary / Secondary School Presentations Annually (all Grade 5 Annually (all Grade 5 Students) Students) Seniors Presentations (e.g. Older and Wiser / Upon Request Annually Remembering When) Public Support Worker (PSW) Presentations By Request Annually Fire Extinguisher Training Sessions By Request By Request Other Presentations By Request By Request The Arson Prevention Program for Children (TAPP-C) By Request By Request Alarmed for Life (smoke alarm program) Annually Annually (Targeted according to Community Risk Profile Findings) Distribution of Education Materials Annually Annually (Targeted according to Community Risk Profile Findings) 5.0 Fire Prevention & Public Education Page - 34 D I LLON CON "1;1 .1 ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Based on the results of the Community Risk Profile, seniors and children continue to be the most vulnerable demographics. Therefore public education efforts should be targeted to address these demographics. The existing programs provided by CEFS address children through several programs, however, an increased emphasis should be placed on providing public education programs to seniors on an annual basis. Increasing the public education efforts of the CEFS will require additional resources targeted specifically towards fire safety education. In addition to prioritizing the vulnerable demographics within the Municipality, the Community Risk Profile identifies areas within Clarington where extended emergency response times are present due to long travel distances. These geographic areas, and specifically residential occupancies containing vulnerable demographics, should be considered a high priority for the department's fire safety education programs such as the `Alarmed for Life Program " and other public education programs targeting the first line of defence. 5.4.3 Fire Prevention Inspections The primary roles of CEFS Fire Prevention Inspectors are to ensure compliance with the Ontario Fire Code through a program of proactive fire inspections, and in the absence of achieving compliance, utilize the authority of the Ontario Fire Code to achieve compliance through enforcement. Departmental policies related to Fire Prevention Inspections include: • 5-1-P (Group B Occupancy Inspections) • 5-2-P (Hotel and Motel Inspections) • 5-3-P (Firefighter In -Service Inspection) • 5-4-P (Fire Safety Inspections) • 5-5-P (Building Profiles and Information Sheets) Types of inspections include: • Scheduled (annual, semi-annual, etc.); • Complaint (public, fire Suppression, other agencies); • Requested (by owner or occupant, lawyer, etc.); • Business Licenses; • Occupancy; • Building permit; and • Retrofits Table 5 following outlines the number of inspections completed in 2010 and 2011. Fire investigations, plan reviews, smoke alarm tickets and fire code charges are discussed in later sections of this IMP. 5.0 Fire Prevention & Public Education „u Page - 35 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 5: Building Inspections and Other Activities (2010-2011) Activity 2011 2010 INSPECTIONS Fire Inspections 273 233 Complaint Inspections 120 107 Homes Visited — Alarmed for Life 453 554 Source: Clarington Emergency & Fire Services 2011 Annual Report 5.4.4 Building Stock Sustaining an accurate inventory of building stock and occupancy types is a challenge for many municipalities. Within the fire service access to this type of inventory provides the opportunity for a more thorough understanding of the fire risk within the community. In the form of a building registry it can also provide valuable contact information and building description information in the event of an actual emergency. Developing and sustaining a building registering can be an onerous task on any one organization. Creating a collaboration of organization with lie interest and needs is one strategy that has worked well for municipalities. Including organizations such as real estate boards, development groups, service organizations in addition to municipal departments can be an effective means to develop this tool. In our view the CEFS could provide a leadership role in developing a strategy to create a Business Directory within the Municipality of Clarington and we recommend that the Fire Chief lead this initiative 5.4.5 Optimizing the First Two Lines of Defence This IMP has been developed in response to strategic priorities including the following: The optimization of the first two lines of defence including public education and prevention, and the utilization of fire safety standards and enforcement to provide a comprehensive fire protection program within the municipality based on the results of the Community Risk Profile. The CEFS supports these strategies through the provision of the existing fire inspection cycles identified in Table 6 and included in CEFS Policy No. 5-4-P, "Fire Safety Inspections". The current workload of this division has reached its capacity in terms of the number of fire inspections and delivery of public education programs. To introduce further activities such as enhanced fire inspection cycles or additional public education targeting the results of the Community Risk Profile will require the consideration of additional staff resources. In our view there are a number of strategies the municipality should consider in order to further optimize the first two lines of defence. These include the hiring of additional fire prevention/public education resources and the use of enhanced technology such as mobile computer tablets complete with appropriate software and applications, which would allow for on-site reporting and order issuances, which would expedite the fire inspection process. 5.0 Fire Prevention & Public Education Page - 36 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 Together these strategies would allow the CEFS to implement a more proactive fire inspection cycle including the new mandatory requirements for annual fire inspections that will be required under the new automatic sprinkler legislation for vulnerable occupancies. These strategies would also support enhanced public education program delivery in response to the results of the Community Risk Profile. In our view Council plays a key role in determining and approving fire inspection cycles as they relate directly to the overall goals and objectives of the department and the approval of staff resources. Table 6 includes a comparison of the CEFS's existing inspection cycles with best practices for comparable municipalities. In our view these recommended targets are appropriate for the CEFS. This Fire Master Plan recommends that Council adopt the recommended performance targets identified in Table 6 and include them in the CEFS Establishing and Regulating By -Law. 5.0 Fire Prevention & Public Education Page - 37 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 6: Existing Fire Prevention Inspection Performance Measures Occupancy Classification Existing Inspection Frequency Recommended Inspection Target Frequency Target Group A Assembly (Recreation By Request Annually Centres (Arenas), Curling/Golf Centres) Group A Assembly (Licensed By Request By Request /after all fires Properties, Nursery/Day Care Facilities, Churches, Special Occasion Permits) Group B Institutional (Schools, Annually Annually hospitals, etc.) Group C Home for special care/group By Request Annually homes/seniors complexes Multi -unit (more than 2 By Request 3 years units) 9.3, 9.5 & 9.8 Apartment Ongoing until Completion Annually Retrofit Hotels/Motels 2 Years 2 Years Group D Business / Personal Services By Request 3 years Group E Mercantile By Request 3 years Group F Div. 1 &2 Factories By Request By Request/Complaints/after (Industrial) all fires Div. 3 Industrial By Request By Request/Complaints/after all fires Permits New Buildings As Required As Required Source: Policy No. 5-4-P, "Fire Safety Inspections " Implementing the above -listed fire prevention inspection targets will approach the inspection of occupancies relating to vulnerable risks and fire loss from the current reactive state to a more proactive method. Increasing the inspection frequency and setting inspection targets will require increased fire inspection resources. 5.0 Fire Prevention & Public Education Page - 38 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 5.4.6 Fire Safety Enforcement The CEFS applies the second line of defence "Fire Safety Standards and Enforcement" through enforcement of the Ontario Building Code, Ontario Fire Code and Municipal by-laws. The OFM recently released Technical Guideline OFM-TG-01-2012 "Fire Safety Inspections and Enforcement". An excerpt from this new guideline states that the scope is "to assist municipalities and their fire services in meeting their fire safety inspection and enforcement responsibilities in the most effective and efficient way possible, as provided by the FPPA". In our view this guideline supports the principles of the three lines of defence as the framework for an effective community fire protection plan. According to the 2011 Annual Report, the CEFS issued two Smoke Alarm Tickets in 2010 and none in 2011. There were three Fire Code Charges in 2011, up from five in 2010. Enforcement has not traditionally been a path of choice for municipalities in working with property owners to achieve compliance with the OFC. This trend is changing across the province with the support of the OFM as indicated above. The CEFS continues to support working with property owners through a consultative process of education and awareness as the first priority to achieve compliance. Enforcement has become an effective tool when achieving compliance cannot be attained by consultation. However, the enforcement process requires additional document preparation time and potentially attendance of fire inspectors in provincial court, impacting workload. With anticipated population growth in Clarington, the workload demands of fire safety enforcement are likely to increase. 5.4.7 Fire Safety Plans The CEFS conducts plans review and new construction inspection in accordance with the applicable By- law and operating procedures. The following data is from the 2011 Annual Report. • Fire Safety Plan Review: 0 44 (2011) 0 8 (2010) • New Construction/Plans Review 0 103 (2011) 0 165 (2010) The workload associated with plans review is strongly related to growth and development within the municipality. As the municipality grows, more time and resources will be required from the division for plans review and new construction inspection. 5.4.8 Fire Investigations The Fire Prevention division conducts post -fire investigations. CEFS Fire Prevention personnel began to conduct fire investigations in 2003. The CEFS completed 33 fire investigations in 2011, up from 23 in 2010. Policy 3-24-P, "Notification of a Fire Investigator," establishes criteria for notifying a Fire Investigator. CEFS fire investigations are conducted using the OFM method as per form OFM SIR 2009: Residential Loss Estimate Guideline. Having Fire Prevention Division staff conduct investigations improves the timing for assessing fire risk trends and allows for improved inspection response times to higher risk or higher fire frequency areas. 5.0 Fire Prevention & Public Education Page - 39 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 5.4.9 Care Homes for Seniors, People with Disabilities The Province of Ontario recently passed legislation requiring the mandatory installation of automatic sprinklers in building occupancies that provide care for seniors, and where people with disabilities reside. Mandatory automatic sprinklers are part of amendments to the Ontario Fire Code and Building Code that will improve fire safety in these occupancies. Other improvements include: • Self-closing doors; • Enhanced fire inspections and staff training; • Annual validation of fire safety plans by local fire services. As indicated above a core component of the new legislation impacting local fire services will be the mandatory annual validation of the fire safety plans within these buildings including inspection of the automatic sprinkler systems. The impact of this legislation on the CEFS current staffing model is assessed within Section 5.6 Fire Prevention Division Staffing Resources. 5.4. 10 Priorities Summary A Summary of Fire Prevention and Public Education priorities, programs and opportunities for enhancements to the current programs are listed in Table 7. The table summarizes the existing programs and recommended additions or performance targets. 5.0 Fire Prevention & Public Education Page - 40 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report—February 2014 Table 7: Fire Prevention and Public Education Priority Setting Worksheet Priority Status Effectiveness, Goals/Objectives Existing programmes adequately address the lire safety priority & ensure compliance with minimum FPPA requirements? Current fire prevention /public education programmes that address the fire safety priority Fire Safety Priority (List in order of Priority) Opportunities for Improvement / Enhancement Fire Prevention (Inspection) Activities Public Education Activities Y/N Fire Prevention Activities Public Education Activities Children Inspections of schools & hospitals on an annual basis School Program (all Grade 5 students in Clarington) Y Enhance use of technology / social medial for public education Mobile Fire Safety Trailer / Hazard House Improve existing public education Fire Station Visits program quality and quantity Junior Firefighters Program Fire Prevention Week Racing Against Drugs (RAD) Adopt -a -school program (suppression crews) TAPP-C (upon request) Seniors Inspections of seniors' residences and retirement homes Older and Wiser —upon request Y Annual inspection of seniors' Target annual presentations to seniors' (proactive) Remembering When—upon request residences / retirement homes groups / seniors' facilities / seniors' residences Hospitals and nursing homes inspected annually (policy) All Residents Inspections of high-rise residential (proactive inspections) Alarmed for Life Program (residential smoke alarm program) Y Inspect special care / group homes Target Alarmed for Life Program to Inspections of low-rise residential (proactive inspections) Fire Prevention Week annually areas identified within Community Inspections upon request /complaint Inspect multi -unit residential Risk Profile Burn Permits Family Safety Day every three years Municipal buildings inspected proactively Clarington Websites / social media Enhance use of technology / social medial for public education Municipal festivals / public events Programs upon request Industrial i Commercial Inspections for licensing / perm is In-service training — upon request Y Inspect commercial / mercantile Hotels /motels inspected every two years (policy) Portable fire extinguisher training —upon request every three years 5.0 Fire Prevention & Public Education Page - 41 OILLAN Municipality of Clarington Fire Master Plan Final Report — February 2014 5.5 Fees for Service Table 8 displays the current fees for services provided by the division, as listed in Policy 2-13-P, "Service Document Fees." Not all of the fees for service listed within the policy appear within the by-laws. It is recommend that the Municipality review the fees for service and ensure consistency between the fees and by-laws. Table 8: Fees for Service Service Provided Service Document Fee Plus Applicable Tax Information/Documents Copy of Emergency Response Report — within 2 years $78.00 Copy of Emergency Response Report — over 2 years - Archival $156.00 File Search $78.00 Fire Regulation Compliance Letter including WETT Inspections, Licence Renewals $78.00 Burning Permits Schedule "A" Open Air Fire Permit — Residential (12 months) $78.00 Schedule "A" Open Air Fire Permit (30 day) $39.00 Schedule `B" Agreement for Controlled Burn Permit - farm No Charge Inspections Liquor Licensing for outdoor patios — includes full inspection $234.00 Part 3 Inspection — over 600 M2— initial inspection — upon request $468.00 Part 9 Inspection — less than 600 m2 — initial inspection — upon request $39.00 Part 3 or Part 9 Inspection additional storey — above or below grade $39.00 Single Family Residential Inspection No Charge Fireworks — sales trailer $78.00 Refreshment Vehicle $78.00 Public Education and Training Fire Safety Plan Development — single family dwelling No Charge Fire Safety Presentation and Lectures No Charge Fire Safety House Presentation No Charge Fire Drill No Charge Fire Extinguisher Training No Charge 5.0 Fire Prevention & Public Education Page - 42 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 The Fire Chief reviews all fees on a regular basis and where necessary makes recommendations for revisions and/or new fees as required. It is recommended that this practice continue on an on-going basis, with support from the CEFS management team. 5.6 Fire Prevention Division Staffing Resources The CEFS is proactive in monitoring the ongoing level of activity within this division through the analyses of work load demands and staff resources available. For example, detailed analyses of fire inspection activities in 2011 reflected approximately 250 hours committed by the Fire Prevention Officer, and a range of approximately 850 to 900 by each of the three Fire Prevention Inspectors. The average time required for all types of inspections, including travel time, file search, inspection, documentation, re- inspection and fire safety plans was estimated as eight hours per occupancy unit. These numbers of available staff hours and average inspection time commitments correspond with the actual fire inspections and complaint inspections conducted in 2010 and 2011 (as shown in Table 6). As indicated within this review the optimization of the first two lines of defence should be considered a strategic priority of the CEFS. To achieve this strategy will require consideration of additional staff resources. Additional staff resources will be required to enhance and expand the level of fire prevention and public education activities in the following areas: 5.0 Fire Prevention & Public Education Page - 43 DILLON CONSUI.AING Service Document Fee Plus Service Provided Applicable Tax Emergency Services Standby Requests — per vehicle for the first hour or part thereof $350.00 Motor Vehicle Collisions on 400 Series Highways, Highway 35/115, Highway 35, Highway 115 — (cost recovery through MTO) — per $410.00 vehicle for the first hour or part thereof) Services as a result of a Malicious or criminal act as determined the $350.00 Fire Chief — per vehicle — per hour Additional Expenses — in order to eliminate an emergency Cost Recovery Preventable Fires and Alarm Services Response to Unapproved Open Air Burning — following one warning — $350.00 per vehicle — per hour Response to fires on or beside rail lines caused by railway company Cost Recovery Response to Malicious and Nuisance Alarms — at the discretion of the $350.00 Fire Chief — per vehicle — per hour The Fire Chief reviews all fees on a regular basis and where necessary makes recommendations for revisions and/or new fees as required. It is recommended that this practice continue on an on-going basis, with support from the CEFS management team. 5.6 Fire Prevention Division Staffing Resources The CEFS is proactive in monitoring the ongoing level of activity within this division through the analyses of work load demands and staff resources available. For example, detailed analyses of fire inspection activities in 2011 reflected approximately 250 hours committed by the Fire Prevention Officer, and a range of approximately 850 to 900 by each of the three Fire Prevention Inspectors. The average time required for all types of inspections, including travel time, file search, inspection, documentation, re- inspection and fire safety plans was estimated as eight hours per occupancy unit. These numbers of available staff hours and average inspection time commitments correspond with the actual fire inspections and complaint inspections conducted in 2010 and 2011 (as shown in Table 6). As indicated within this review the optimization of the first two lines of defence should be considered a strategic priority of the CEFS. To achieve this strategy will require consideration of additional staff resources. Additional staff resources will be required to enhance and expand the level of fire prevention and public education activities in the following areas: 5.0 Fire Prevention & Public Education Page - 43 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Fire Inspection Cycles: Based on the workload analyses conducted by the department it will require two additional Fire Inspectors to achieve the proposed fire inspection cycles identified in Table 6 based on the current building stock within the community. These cycles are consistent with the direction of other municipalities targeting enhanced optimization of the first two lines of defence. • Plans Examination: In collaboration with the Building Department plans examination is a key role of the fire department in the planning and development of new building stock within the community. Ensuring required life and fire safety systems are included and installed within new occupancies is a critical component of planning a fire safe community. Fire department participation at the pre -construction and construction stage of new buildings also supports the role of the department in maintain the life and fire safety systems on an ongoing basis. • Public Education Programs: The delivery of public education programs is a proven strategy in reducing the number of fire related injuries and fire related fatalities in Ontario, and reducing the dollar loss as a result of fires. The Community Risk Profile identifies areas such as the demographics of the community where the percentage of seniors within the community is growing. Seniors are identified as one of the most vulnerable demographics and where focused fire education programs can have positive impacts. • Care Homes for Seniors, People with Disabilities: New legislation will require the CEFS to conduct annual validation of the fire safety plans and automatic sprinkler systems within these buildings. This will be a new activity within this division resulting in additional workload. • Community Growth: Growth within the community is anticipated to increase the building stock (number of buildings) and increase the population. As indicated within the Community Risk Profile this will also further increase the percentage of seniors and vulnerable demographics within the community. Developing a strategy to address future community growth and sustaining the level of fire prevention and public education programs should also be considered a priority of this IMP. As indicated above the current workload of this division has reached its capacity in terms of the number of fire inspections and delivery of public education programs. To introduce further activities such as enhanced fire inspection cycles or additional public education targeting the results of the Community Risk Profile will require the consideration of additional staff resources. A component of considering new or additional resources within this division is potential efficiencies available through the use of new technology, and recognition that efficiencies can be achieved through regular inspection cycles resulting in sustained compliance with the Ontario Fire Code. Based on our analyses of the current hours available for fire inspections, the current building stock within the community and our understanding of the projected growth of the community over the 10 year horizon of this IMP the CEFS will require an additional three fire inspectors. In addition, the CEFS should be considering a dedicated a new position of an accredited Fire and Life Safety Educator. This new position would be responsible for coordinating and delivering the public education activities of the CEFS. This will provide an opportunity to meet the public education delivery targets, enhance programming and delivery geared toward the vulnerable populations (namely seniors). Additional opportunities, such as entering CEFS into an active social media practice for public educating would also be a priority assigned to a dedicated public educator position. 5.0 Fire Prevention & Public Education Page - 44 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 In our view new positions within this division should be implemented incrementally and assed on a regular basis in relation to the efficiencies of new technology and achieving the proposed fire inspection cycles within this IMP. Our recommended implementation strategy for new positions includes the following: • Hire two additional Fire Inspectors (one in 2015 and one in 2016); and • Hire a dedicated Fire and Life Safety Educator in 2015. Additional support for the division could be achieved through the development of strategies to utilize Suppression Division staff during down time to conduct fire prevention and public education activities. 5.7 Community -Based Fire Protection Model An alternate method of delivering fire prevention services is via a Community-based model. The primary initiative of a Community -Based Fire Protection Model is the co -location of fire prevention and public education staff resources and fire suppression resources (firefighting crews) under one roof (e.g. at a fire station). This initiative is designed to achieve a consolidated, team -based and customer -focused approach to managing fire risks within a particular area of a community. Examples of communities within the Greater Toronto Area that have initiated this type of model include the City of Markham and the City of Burlington. The City of Oshawa recently approved the model and is moving forward with implementation. In our discussions with these and other municipalities that have implemented this concept, they have experienced evidence of significantly improved interaction and relationships between these two traditional functions within the fire service. The impact of this has been more effective service delivery in both areas. It helps prepare fire suppression staff as they are advised regularly by the in-house Fire Prevention Inspector of building risks within their assigned response area. It also assists in pre -planning and expands public education and prevention activities through enhanced working relationships, cooperation, and assistance between the two divisions. The additional benefits that other municipalities have identified include: • Access to expertise from all areas of fire safety Similar to "a one stop shop" the Community -Based Fire Protection Model offers the opportunity to contact a local station and receive prevention and public education information at the local level, with a wide range of expertise available from both prevention and suppression staff. • Local access to public education programs and learning opportunities. Public education must be a major driver within the fire and emergency service. Access to programs at the community level through delivery at local stations will enhance the effectiveness of both the programs and the commitment to meet the needs of each community. • Tarzeted risk manazement desizned to address specific local needs. The opportunity for both suppression and prevention staff to work together in addressing the fire risks within each district or community at the local level will enhance the ability to ensure proactive inspections and preplanning efforts are coordinated. • Greater opportunity for input from stakeholders (i.e. residents) A community-based program will provide the local communities with an opportunity for enhanced input into the specific programs required, as well as provide direct feedback to the staff delivering the services and programs. 5.0 Fire Prevention & Public Education Page - 45 D I LLON CONSUI:I ING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Improved visibility and openness of the fire stations as public resource buildings The use of fire stations as a local meeting place for groups such as Neighbourhood Watch, offers the opportunity to enhance the use of the existing resources within the community. It also enhances the ability for staff to become familiar with the needs of the community through partnerships. • Cross training opportunities The opportunity to further develop suppression staff in areas of prevention and public education by working together with prevention staff will assist CEFS in providing a focus on public education and prevention. A pilot program introduced by a comparable municipality provided an excellent example of the type of effectiveness this model can achieve. Working together with the Special Projects / Public Education Officer, fire suppression staff developed a partnership with two local schools. In this example, the on - duty suppression staff assisted in implementing an "All Star Reading Program" at the schools. The feedback from the teachers was extremely positive. The students identified the firefighters as role models and became active participants in the reading program, while also garnering a better understanding of fire safety. Based on our analyses the CEFS would benefit from further optimization of the Community -Based Fire Protection Model identified within this IMP to enhance the overall level of services provided to the community. If a fifth Fire Prevention Officer was added to the division, there would be one Fire Prevention Officer (not including the Fire Prevention Captain), to be located at each of the existing stations. This would serve the Municipality from the existing station model. In order to implement a Community -Based Fire Protection Model within the division, new office space would need to be planned and constructed in existing and future fire stations, in addition to potentially relocating office staff in other divisions of the CEFS. 5.8 Summary and Recommendations CEFS is surpassing the minimum requirements of the FPPA with regard to the provision of fire prevention and public education services. CEFS has been successful at providing a number of fire prevention and public education programs and initiatives over the past ten years. Evidence throughout the province and best practices of other municipalities indicates that the optimization of the first two lines of defence has shown opportunities to mitigate emergency call volume increases, decrease fatalities and injuries as a result of a fire, decrease the dollar loss as a result of a fire and provide an overall higher level of fire protection services to the community. This is also supported by the OFM with the current direction to emphasize the first two lines of defence across the fire services of all municipalities within the Province of Ontario. The Municipality of Clarington would benefit from the enhanced prevention inspection and fire safety education efforts recommended to be undertaken by CEFS within this Fire Master Plan. As a result of the review of the Fire Prevention Division, the following actions are recommended: 1. That CEFS prioritize strategies and initiatives to enhance the first two lines of defence to mitigate emergency call volumes and increase the overall level of fire protection. That CEFS' public education efforts target and address the vulnerable demographics identified within the Community Risk Profile (e.g. seniors and children) with an increased emphasis to provide public education programs to seniors on an annual basis. 5.0 Fire Prevention & Public Education Page - 46 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 3. That CEFS' `Alarmed for Life Program" and other public education programs supporting the first line of defence be targeted at areas within Clarington where extended emergency response times are present due to long travel distances, as identified within the Community Risk Profile. 4. That Council consider the recommended performance targets for fire safety inspections and public education program delivery cycles identified within this section of the report and include them in the CEFS Establishing and Regulating By -Law. That CEFS investigate and purchase enhanced technology such as mobile computer tablets complete with appropriate software and applications, which would allow for on-site reporting and order issuances, and would expedite the fire inspection process. 6. That the Municipality of Clarington create a Business Directory within the Municipality to assist CEFS with building occupancy and occupancy use. 7. That CEFS continues to review all fees for service on a regular basis and where necessary make recommendations for revisions and or new fees as required to reflect a full -cost recovery system. 8. That the implementation strategy for three new positions within the CEFS Fire Prevention and Public Education division include the following within the short term horizon (one to three years) of this FMP: o Hire two additional Fire Inspectors; and o Hire a dedicated Fire and Life Safety Educator. That CEFS continuously assess the need for additional fire prevention and public education resources as a result of monitoring the increased building stock resulting from growth and development within the Municipality. 10. That CEFS develop strategies to utilize on -duty Suppression Division staff, when available, for fire prevention activities. 5.0 Fire Prevention & Public Education Page - 47 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 6.0 FIRE SUPPRESSION The existing Fire Suppression Division complement consists of 52 full-time firefighters (including eight Captains) and 125 volunteer firefighters (including five volunteer District Chiefs and 20 volunteer Captains). The firefighters are assigned to five fire stations located strategically throughout the Municipality. Full-time firefighters are located at Station 1 and Station 4. Currently, each station has a complement of 25 volunteer firefighters. Fire Suppression and Emergency Response services are defined in Policy 2-34-P, "Operational Structure" and the Establishing and Regulation By -Law. The following is a summary of services provided: • Fire suppression services in an offensive and defensive mode, including search and rescue operations, forcible entry, ventilation, protecting exposures, salvage and overhaul as appropriate • Emergency pre -hospital care responses and medical acts such as defibrillation, standard first aid and CPR. The Emergency Medical Responder Program shall be maintained to Base Hospital protocols as agreed • Extrication using hand tools, air bags and heavy hydraulic tools as required. • Level 1 basic rope rescues (full-time only) • Water/ice rescue services (up to level III) • Defensive hazardous material emergency response to the operations level by full-time firefighters and awareness level by volunteer firefighters. In addition to operations level response, the capability for rescue and emergency decontamination shall be maintained where resources permit. • Highly specialized rescue services (e.g. Trench Rescue, Confined Space, Heavy Urban Search and Rescue (HUSAR) and Structural Collapse) at the basic awareness level. 6.1 Fire Suppression Staffing The Suppression Division is currently overseen by both the Deputy Fire Chiefs, as one oversees the full- time suppression staff and the other oversees the volunteer suppression staff. The minimum staffing of on -duty full-time members, according to Policy 2-25-P, "Platoon Staffing," is seven per platoon. With the transfer of communications and dispatch to Oshawa Fire Services, this has been reduced to six per platoon. Policies have not yet been updated to reflect this change. The following summarizes the policy: • Three members designated to suppression duties at Station 1 in the position of captain or acting captain, firefighter, and driver/pump operator; and • Three members designated to suppression duties at Station 4 in the position of captain or acting captain, firefighter, and driver/pump operator. Policy 2-25-P includes a guideline, that when possible, five firefighters each will be assigned to Pump 1 (Bowmanville) and Pump 4 (Courtice), as follows: 6.0 Fire Suppression Page - 48 DILLON CONSUI.A INC: Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 9: Existing Staffing Guideline (Policy 2-25-P) On -Duty Firefighters (excluding dispatchers) Pump 10 Bowmanville Pump 14 Courtice Rescue Truck Bowmanville Off -Duty Firefighters 12 5 5 2 0 11 4 5 2 1 10 5 5 0 2 9 5 4 0 3 8 4 4 0 4 7 4 3 0 5 6 3 3 0 6 Less than 6 firefighters on -duty would require overtime staff Fire suppression staff is assigned to a shift schedule, defined within the collective agreement, and work 42 hours per week on average, as scheduled by the Fire Chief. In the event the staffing level drops below the minimum staffing complement, the overtime call back system is used to maintain this minimum staffing level. The current minimum staffing assignments per station and apparatus are summarized below in Table 10. Table 10: Current Stations, Apparatus & Minimum Staffing Station Station Address Apparatus Minimum Staffing 1 2430 Highway 92, Bowmanville Pumper 10 3 (full-time) Pumper 11 3 (volunteer) Tanker 11 2 (volunteer) Aerial 11 0 Rescue 11 0 Utility 11 0 2 247 King Avenue East, Newcastle Pumper 12 3 (volunteer) Pumper 122 0 Tanker 12 2 (volunteer) Aerial 12 0 3 5708 Main Street, Orono Pumper 13 3 (volunteer) Tanker 13 2 (volunteer) 6.0 Fire Suppression „ul Page - 49 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Station Station Address Apparatus Minimum Staffing 4 2611 Trull's Road, Courtice Pumper 14 3 (full-time) Pumper 144 3 (volunteer) Tanker 14 2 (volunteer) Rescue 14 0 5 2354 Concession Road 8, Enniskillen Pumper 15 3 (volunteer) Tanker 15 2 (volunteer) Total (as Determined by the Fire Chiu Policy 6-5-P, "Volunteer Apparatus Staffing" describes minimum volunteer staffing: • Volunteer Pumpers shall be staffed with a minimum of three firefighters (one being an authorized driver) • Volunteer Tankers shall be staffed with a minimum of two firefighters (one being an authorized driver) • For the purpose of water shuttle, tankers may be staffed with one firefighter (Must be an authorized driver) • Volunteer Aerial apparatus shall be staffed with a minimum of three firefighters (one being an authorized driver) • Volunteer Rescue apparatus shall be staffed with a minimum of two firefighters (one being an authorized driver) • Volunteer support vehicles shall be staffed with a minimum of one firefighter (Must be an authorized driver) The CEFS composite model of utilizing a combination of volunteer firefighters and full-time firefighters is serving the Municipality well. Our observations and consultation with the volunteer firefighters confirm their desire to continue to support the full-time crews to provide the high quality of services they have historically provided. Based on our consultation with the volunteer firefighters and full-time firefighter's representatives including our analyses of the department, strategies targeted at sustaining the current composite model and optimizing the training available are priorities for CEFS management team. Strategies to support and sustain this model are recommended within this Fire Master Plan including: • Prioritizing the incremental implementation of full-time staffing at Station 2 in Newcastle in order to achieve the target of 24 hour full-time coverage by the midterm horizon of this FMP (i.e. 2018); • Prioritizing the incremental increasing of the station complement of volunteer firefighters at each station from the current 25 to 30 within the short-term horizon of this FMP; • The introduction of a new on -duty full-time Senior Captain position to oversee the operational requirements of the CEFS on a 24 hour basis; and • Considering adding five new volunteer Acting Captain positions to each of the five fire station complements. 6.0 Fire Suppression Page - 50 DILL 3N CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Current practice within the CEFS is to allow full-time staffed apparatus to be reduced to a minimum of three firefighters on an apparatus. This practice is required within the current staffing model to minimize overtime costs based on the current total complement of full-time firefighters. Best practices within Ontario reflect that four firefighters arriving on the initial apparatus is the preferred model in order to facilitate either a limited rescue or limited firefighting. Recommendations to incrementally increase the number of volunteer firefighters and full-time firefighters are provided to assist the CEFS in moving towards a consistent staffing of the initial arriving apparatus with four firefighters at all times. In addition to being consistent with our understanding of current best practises within Ontario this staffing model is consistent with the recommended apparatus staffing assignments of the NFPA 1710 standard. 6.2 Fire Department Water Tanker Shuttle Accreditation The Superior Tanker Shuttle Accreditation is a proprietary process managed by the Fire Underwriters Survey (FUS), a national organization administered by SCM Risk Management Services Inc. formerly CGI Insurance Business Services, formerly the Insurers' Advisory Organization and Canadian Underwriters Association. As a method to provide water for firefighting in areas without municipal water supply the Superior Tanker Shuttle Accreditation includes a process that includes the following: • set up pumper apparatus at fire event and deliver water from temporary storage facility (ex. portable tank) through fire pump to fire; • draft water (from a location where water supplies are known to be reliable and accessible) into a mobile water supply apparatus; • move water from source location to fire event using mobile water supply apparatus; • dump water into temporary storage facility (ex. portable tank) at fire event location; and • repeat shuttle cycle. The `Levels of Service' assigned with the Tanker Shuttle Accreditation (e.g. Standard Tanker Shuttle Service or Superior Tanker Shuttle Accreditation) are determined by the alternative water supply performance and capabilities provided by the fire service. As stated by the FUS: "To be recognized, for Standard Tanker Shuttle Service, the fire department must have adequate equipment, training and continuous access to approved alternative water supplies to deliver standard tanker shuttle service in accordance with NFPA 1142, Standard on Water Supplies for Suburban and Rural Fire Fighting. " As of September 16, 2012, all five CEFS Fire Stations within the Municipality of Clarington were credited under this process by Fire Protection Survey Services. 6.3 Fire Stations The CEFS's five fire stations are strategically located throughout the Municipality as shown in Figure 7. A new station in Newcastle is currently under construction, tentatively scheduled to open in early 2014. Table 11 provides a description of the existing stations. 6.0 Fire Suppression Page - 51 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 8: Existing Station Descriptions Station Description 1. 2430 Highway 92, Bowmanville Station 1, built in 1994, is the headquarters for CEFS and home to full-time and volunteer suppression staff. It houses staff in fire suppression, administration, fire prevention, mechanical and training. There is an expansion planned due to lack of office space. 2. 247 King Avenue East, Newcastle Station 2 was built in the 1950s as an (future station location 3333 Highway 2) auto sale / garage facility. In the mid- 1970s CEFS moved into the facility - as a volunteer station. It has historically been a volunteer station. A new station is under construction at 3333 Highway 2 in Newcastle, with a tentative opening in early 2014. 3. 5708 Main Street, Orono Station 3 was built in 1984. It is a volunteer station. Training and storage space is limited at this station. 6.0 Fire Suppression Page - 52 DILLON CONSULTING: Municipality of Clarington Fire Master Plan Final Report — February 2014 StationRN&7jd NU- Description 4. 2611 Trull's Road, Courtice Station 4 was built in 2005. It is a composite station housing both full- time and volunteer suppression staff. The building is shared with Durham Region Police. 5. 2354 Concession Road 8, Enniskillen Station 5 was built in 1990. It is a volunteer station. Training and storage space is limited at this station. 6.0 Fire Suppression Page - 53 DILLON CONSULTING -C R C a 6' C 3 MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN F i-ure 7: Existing Fire Station Locations • FIRE STATION FREEWAY ARTERIAL COLLECTOR LOCAL RAMP f RAILWAY F --I WATERBODY MUNICIPAL BOUNDARY N O 0.5 1 2 3 kSCALE 1:100,000 W� km SCALE s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: JJA MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Ciarington FMP\Mapping\StationLocations.mxd 000-0 PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 07/02/13 Municipality of Clarington Fire Master Plan Final Report — February 2014 6.4 Fire Suppression Guidelines, Industry Standards, Industry Best Practices Within Ontario there is no specific legislated standard that a community must achieve with regard to the type of firefighter (career/part-time/volunteer) or the number of firefighters required to respond to any given incident. As indicated within the OFM 2011 Review the FPPA does require that a municipal Council assess this level of resources based on determining its "local needs and circumstances ". Over the past decade there has been a transition within the fire service industry across North America to the utilization of community risk-based analyses to determine the appropriate level of firefighter deployment based on the critical tasks to be performed to effectively, efficiently and safely conduct fire suppression operations. Utilizing the findings of the Community Risk Profile contained within this IMP this section assesses the relevant PFSG authored by the Office of the Fire Marshal - Ontario, current standards of the National Fire Protection Association. Together the OFM and NFPA represent the agencies responsible for fire protection within the Province of Ontario, the most highly recognized fire service association in North America. In our view these agencies cumulatively represent the appropriate authorities for identifying an appropriate methodology and process for determining firefighter deployment in the Municipality of Clarington. It is recommended that CEFS and Council consider identifying performance targets for the Suppression Division including targets for dispatch times, turnout times, first response and depth of response. 6.5 PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk PFSG 04-08-10 (Appendix C) was released by the OFM in January 2011 and includes a "Critical Task Matrix" to assist municipalities in determining the level of fire ground staffing capabilities based upon low, moderate, high and extreme risks. In May of 2013 the OFM indicated that this PFSG was under review. That review remains ongoing and the current version of the PFSG identified within this report remains the most current publication from the OFM. The Critical Task Matrix is defined by the OFM as: "The critical Task Matrix is based on the Incident Management System (IMS). It will assist in identifying fireground staffing capabilities based upon low, moderate, high and extreme risk levels within your community. The Office of the Fire Marshal (OFM) has identified the critical tasks from the Incident Management System that are used during fireground operations. These tasks are consistent with applicable legislation, industry best practices and the Ontario Fire College Curriculum ". The matrix further recognizes that within the IMS that: • Upon arrival and rapid size -up, the incident commander can upgrade or downgrade response; • Crews can be reassigned to other tasks once original assignments are complete; • Response protocols can be established with specific risk levels used to assist with pre- planning to obtain more resources based on the escalating nature of the emergency; • Fire departments perform rescue and building personnel conduct evacuations according to their approved fire safety plans; • Some tasks will never be assigned based on the tactical approach chosen by the incident commander (offensive versus defensive). 6.0 Fire Suppression Page - SS DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 The Critical Task Matrix provides a lower and upper range of the number of firefighters required to respond for each of the four risk levels. The actual number of firefighters within each range is based upon analysis of actual fires, the Occupational Health and Safety Act Section 21 Guidance Notes affecting firefighters, and industry best practices. Figure 8 reflects the PFSG 04-08-10 (Appendix C) Critical Task Matrix. Figure 8: PFSG 04-08-10 Critical Task Matrix Fireground Critical Tasks Low R1sk LERL UERL Moderate Risk LERL UERL High Risk LERL UERL Extreme Risk LERL UERL Incident Command 1 1 1 1 1 1 1 Pump Operator 1 1 1 1 1 1 1 1 Attack Line (Confine d Extinguish) 2 2 2 2 2 2 2 2 Adddhonal Pump Operators) 0 0 0 2 2 4 4 6 Addeohal Attack Lite (Confect d Extinguish) • Backup 0 0 0 4 4 8 8 12 Search b Rescue 0 0 2 4 2 6 2 8 Initial Rapid tnterventan Team (IRIT) 0 0 4 6 8 16 12 22 VernrWtwn 0 2 2 2 2 4 2 8 Water Supply - pressunzed 0 1 1 1 1 1 1 2 Water Supply - non -pressurized 0 1 3 1 1 4 2 6 4 8 Incident Response Foroble Entry Team 0 1 0 1 0 0 0 1 0 1 (Note Where zero or UhLtes 0 1 1 1 1 1 1 1 no number has been Laddenrg (Ground Ladders) 0 2 0 2 0 4 0 6 assigned the task may be performedat Laddenng (Aerial or ekvatxg device operator) 0 0 0 2 0 2 0 2 the direction of the :-cident commander ) Exposure protection 0 4 2 6 2 6 Incident Safety Officer 0 1 1 1 1 1 Accountability 1 1 1 1 1 1 Entry Control 0 2 1 4 1 4 RehaWdation 0 1 1 1 1 1 Salvage 0 2 2 2 2 2 Ughlxhg 0 2 0 2 Fretting Occupants 0 4 0 4 Scribe 1 1 1 1 Sector Offoers 1 4 1 4 Ai Management (ori refilling station. etc) 1 1 2 Logistics Officer Admerstratrve anNor Feante Officer Planning Officer Other or Additional Response Evacuations (large scale) Considerations Communications (dgwch) Public Information Officer Overhaul Addd.onal F,refgh!ers Indent Response Range 4 1 13 16 43 36 1 83 49 108 Summary Total Fire Department Including External Fire Call Incident Response Range (•. - , Within) Not": • LERL = Lower Effective Response Level 6 UERL = Upper Eflettive Response Leel (together form the cntical staffing range) • This tool provides a range of staff ng reQuienhent5 only Actual numbers may vary dependng on the fire nsk that ensts a the mun,opahty Task, performed on fireground based on deosans made by Incident Commander • Planning moderate high and extreme risk oc upannesAxvrfurther abons d f rer validate staffing regtxremems to ensure line optimum level of protection for the mun.opaldy • Simuhaneous events vnll repwre further consideration due to additional personnel re<wements beyond the scope of this matnx • InOOent Command will assume responypla es for the accountability and entry conWen no tasks no person has been assgnedntil . or ua person Ras been assigned the task The OFM Critical Task Matrix indicates that the lower and upper level incident response range to effectively, efficiently and safely conduct fire suppression operations to safely complete the tasks associated with a fire in moderate risk (Group C - Residential Occupancy) would be 16 to 43. 6.0 Fire Suppression Page - 56 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 In comparison, the matrix indicates that the lower and upper level incident response range to effectively, efficiently and safely conduct fire suppression operations tasks associated with high risk occupancy (e.g. Group B — Institutional Occupancy) would be 36 to 83. 6.5.1 National Fire Protection Association (NFPA) 1710 Standard The National Fire Protection Association (NFPA) is an international non-profit organization that was established in 1896. The company's mission is to reduce the worldwide burden of fire and other hazards on the quality of life by providing and advocating consensus codes and standards, research, training, and education. With a membership that includes more than 70,000 individuals from nearly 100 nations NFPA is recognized as one of the world's leading advocates of fire prevention and an authoritative source on public safety. NFPA is responsible for 300 codes and standards that are designed to minimize the risk and effects of fire by establishing criteria for building, processing, design, service, and installation in the United States, as well as many other countries. Its more than 200 technical code and standard development committees are comprised of over 6,000 volunteer seats. Volunteers vote on proposals and revisions in a process that is accredited by the American National Standards Institute (ANSI). NFPA 1710 "Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments" provides a resource for determining and evaluating the number of career firefighters required based upon recognized industry best practices. NFPA 1710 is a standard that is designed for larger municipalities that as a result of many factors are operating their fire department utilizing substantially career firefighters. Relevant references from NFPA 1710 include the following: • This standard applies to the deployment of resources by a fire department to emergency situations when operations can be implemented to save lives and property. • The standard is a benchmark for most common responses and a platform for developing the appropriate plan for deployment of resources for fires in higher hazard occupancies or more complex incidents. The NFPA references support the strategic priority of saving lives and property, as well as recognising the standard as a "benchmark" for determining the appropriate level of resources based on the complexity and level of risk present. This standard identifies the minimum deployment of firefighters based on an "Initial Arriving Company" and an "Initial Full Alarm Assignment". 6.5.2 Initial Arriving Company —"First Response" First response is consistently defined in the fire service as the number of firefighters initially deployed to respond to an incident. Fire service leaders and professional regulating bodies have agreed that until a sufficient number of firefighters are assembled on -scene, initiating tactics such as entry into the building to conduct search and rescue, or initiating interior fire suppression operations are not safe practices. If fewer than four firefighters arrive on scene, they must wait until a second vehicle, or additional firefighters arrive on scene to have sufficient staff to commence these activities. NFPA 1710 refers to the Initial Arriving Company as an Engine Company and further defines the minimum staffing level of an Engine Company as four firefighters whose primary functions are to pump and deliver water and perform basic firefighting at fires, including search and rescue. 6.0 Fire Suppression Page - 57 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 A first response of four firefighters once assembled on -scene is typically assigned the following operational functions. The Officer in charge shall assume the role of Incident Command; one firefighter shall be designated as the pump operator; one firefighter shall complete the task of making the fire hydrant connection; and the fourth firefighter shall prepare an initial fire attack line for operation. The assembly of four firefighters on the fire scene provides sufficient resources to safely initiate limited rescue or firefighting operations. This first crew of four firefighters is also able to conduct the strategic operational priority of "size -up" whereby the Officer in -charge can evaluate the incident and where necessary, request an additional depth of resources that may not have been dispatched as part of the first response. Fire scene responsibilities of a First Response are highlighted in Figure 9 below. Figure 9: First Response Fire Scene Responsibilities Able to commence limited rescue or fire fighting with 4 firefighters 4 Firefighters can provide: • Command • Pump operator • Hydrant connectior • Advance hose line I Office of the Fire Marshal, Ontario, Public Fire Safety Guideline 04-08-12, December, 2001. (Rescinded November 10, 2010) The NFPA 1710 standard identifies a first response deployment of four firefighters required to effectively, efficiently and safely conduct initial fire suppression operations. As listed in the Fireground Critical Tasks and summarized in Figure 8 the critical tasks with four firefighters on -scene include incident command, pumper operator and an attack line. This relates to a low-risk call response or a first response for all calls. 6.5.3 Initial Full Alarm Assignment —"Depth of Response" In comparison to the first response, the depth of response relates to the "total' number of firefighters initially assigned to an incident. Depth of response is also commonly referred to as "First Alarm" or "Full Response". For example NFPA 1710 defines "Initial Full Alarm Assignment" as "Those personnel, equipment, and resources ordinarily dispatched upon notification of a structure fire ". 6.0 Fire Suppression Page - 58 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 The standard utilizes the example of a fire risk scenario in a 2,000 square foot, two-story 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. Within this study this occupancy would be classified as a Group C - Residential Occupancy (moderate risk). It is very important to recognize that depth of response is referring to the "total' number of firefighters initially assigned to an incident. The total number of firefighters assigned to an incident can vary based on the type of occupancy and the level of risk present. Fires involving occupancies that have been assigned a higher level of risk such as high, or extreme may require a higher number of firefighters as part of the initial depth of response. The NFPA 1710 standard for depth of response to the fire risk scenario presented is fourteen firefighters, fifteen if an aerial device is to be used. The NFPA 1710 fire scene responsibilities for depth of response including an aerial are highlighted in Figure 10. Figure 10: Depth of Response Fire Scene Responsibilities (Shown including an aerial device — I5 firefighters) Modified from the Office of the Fire Marshal, Ontario, Public Fire Safety Guideline 04-08-12, December, 2001. (Rescinded November 10, 2010). The NFPA 1710 standard identifies a depth of response deployment of 14 firefighters (with one additional firefighter with an aerial on -scene) to effectively, efficiently and safely conduct initial fire suppression operations in a fire risk scenario representing a single-family detached dwelling. Within this FMP this occupancy would be classified as a Group C - Residential Occupancy (moderate risk). As listed in the Fireground Critical Tasks shown in Figure 9, the critical tasks for a moderate level risk include: • Incident Command /Accountability (I firefighter) • Pump Operator (1 firefighter) • Two Attack Lines (4 firefighters) 6.0 Fire Suppression Page - 59 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 • Search and Rescue (2 firefighters) • Forcible Entry (I firefighter) • Water supply (1 firefighter) • Initial Rapid Intervention Team (2 firefighters) • Ventilation (2 firefighters) • Laddering - Aerial — (additional 1 firefighter, optional) In summary, following the comparisons of these industry guidelines and standards, this IMP supports a recommended first response deployment of four firefighters, and a depth of response deployment of 14 firefighters to a moderate risk occupancy, and 24 firefighters to a high risk occupancy. 6.6 National Fire Protection Association (NFPA)1720 Standard NFPA 1720 "Standard for the Organization and Deployment of Fire suppression Operations, Emergency medical Operations, and Special Operations to the Public by Volunteer Fire Departments " provides a resource for determining and evaluating the number of volunteer firefighters required based upon recognized industry best practices. The NFPA 1720 standard further supports the minimum initial response staffing to include four firefighters including "Initial firefighting operations shall be organized to ensure that at least four fire fighters are assembled before interior fire suppression operations are initiated in a hazardous area". This particular standard recognizes that the four firefighters may not arrive on the same vehicle, but that there must be four on the scene prior to initiating any type of interior firefighting operations. Within this standard the NFPA identifies five different categories described as "Demand Zones" that relate to the type of risk that may be found within a typical community; either by population density, travel distance, or special circumstances. The standard then identifies a minimum level of firefighters that would be recommended for each of these categories. Table 12 presents the NFPA minimum staffing levels by category. 6.0 Fire Suppression Page - 60 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 12: NEPA 1720 The NFPA 1720 standard utilizes population density as a factor in evaluating the minimum number of firefighters recommended for depth of response. As a standard primarily for use by volunteer fire departments it recognizes lower population densities are typically found in smaller communities in comparison to much higher population densities found in large urban centres. The NFPA 1720 standard identifies an initial response deployment of four firefighters to effectively, efficiently and safely conduct initial fire suppression operations. The NFPA 1720 standard identifies a depth of response deployment range of four to 15 firefighters depending on the risks associated with fire demand zones to effectively, efficiently and safely conduct initial fire suppression operations. 6.7 Summary of Fire Suppression Guidelines, Industry Standards, and Industry Best Practices In our view the framework for identifying community risk and deploying sufficient firefighting resources to address the community risk present is accurately presented in PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk (Appendix C). First Response: Having considered PF SG 04-08-10 and NFPA 1710 and 1720 Standards and based on our experience in working with other municipalities across Ontario current best practices within the Ontario fire service for deployment of a first response to effectively, efficiently and safely conduct initial fire suppression operations reflects a minimum deployment of four firefighters. 6.0 Fire Suppression Page - 61 DILLON CONSULA ING Minimum # of Response Meets Demand Zones Demographics Firefighters Time (Turnout Objective+Travel) Responding in (%) Minutes Urban Area >1000 people per square 15 9 90 mile Suburban Area 500-1000 people per 10 10 80 square mile Rural Area <500 people per square 6 14 80 mile Remote Area Travel Distance + or — 8 4 Dependent 90 miles upon travel distance Special Risks To be determined by Fire To be To be 90 Department determined by determined by Fire Fire Department Department The NFPA 1720 standard utilizes population density as a factor in evaluating the minimum number of firefighters recommended for depth of response. As a standard primarily for use by volunteer fire departments it recognizes lower population densities are typically found in smaller communities in comparison to much higher population densities found in large urban centres. The NFPA 1720 standard identifies an initial response deployment of four firefighters to effectively, efficiently and safely conduct initial fire suppression operations. The NFPA 1720 standard identifies a depth of response deployment range of four to 15 firefighters depending on the risks associated with fire demand zones to effectively, efficiently and safely conduct initial fire suppression operations. 6.7 Summary of Fire Suppression Guidelines, Industry Standards, and Industry Best Practices In our view the framework for identifying community risk and deploying sufficient firefighting resources to address the community risk present is accurately presented in PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk (Appendix C). First Response: Having considered PF SG 04-08-10 and NFPA 1710 and 1720 Standards and based on our experience in working with other municipalities across Ontario current best practices within the Ontario fire service for deployment of a first response to effectively, efficiently and safely conduct initial fire suppression operations reflects a minimum deployment of four firefighters. 6.0 Fire Suppression Page - 61 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 In our view an appropriate deployment of a first response within the Municipality of Clarington should include a minimum first response of four firefighters to provide sufficient firefighting resources to effectively, efficiently and safely conduct either a limited rescue or limited firefighting operations including the fireground critical tasks of: Incident Command -1 firefighter/officer Pump Operation 1 firefighter Attack Line - 2 firefighters (Confine and Extinguish) Depth of Response: Current best practices within the Ontario fire service for depth of response reflect the principles of PFSG 04-08-10 (Appendix C) that utilizes fireground critical tasks for determining the appropriate number of firefighters to be deployed based on the associated occupancy risk. Fireground critical tasks refer to the types of activities that are required to be completed by firefighters to effectively and safely mitigate a fire situation. PFSG 04-08-10 provides a lower and upper effective range of firefighters for each of the occupancy risks levels including low, moderate, high and extreme. The OFM has identified the critical tasks from the Incident Management System (IMS) that are used during fireground operations. As indicated within the guideline these tasks are consistent with applicable legislation, industry best practices and the Ontario Fire College curriculum. Residential occupancies and specifically single family residences provide an example of the type of fire risk present and fireground critical tasks required to effectively, efficiently and safely mitigate an incident. This is particularly relevant to Ontario where residential occupancies have historically accounted for 71% of all structure fires and 85% of all fire related deaths.2 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-story 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 14 firefighters, 15 if an aerial device is deployed. The identification of fire risk classifications (e.g. low, moderate, high and extreme) is determined based on analyses of all available information that defines the characteristics of a community. The Community Risk Profile included within this IMP (Appendix I) provides these analyses for the Municipality of Clarington. The analyses consider the eight key risk factors identified within the OFM Fire Risk Sub - Model. 2 Source: 2012 Ontario Fire Marshall data 6.0 Fire Suppression Page - 62 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 The fire suppression resources necessary to complete the fireground critical tasks can vary based on the type of occupancy. For example, a fire situation in the example of a single family dwelling (moderate risk) will require sufficient fire suppression resources that are determined based on the Community Risk Profile including the eight key factors and the relevant PFSG and the NFPA 1710/1720 and OHSA standards reflecting best practices in fire suppression activities. High risk occupancies such as a nursing home where higher risks such as on older demographic (seniors) that may become disoriented, or unable to evacuate themselves present a different challenge for responding firefighters. The nature of these occupancies to have more residents than a single family home present further challenges for conducting search and rescue and evacuation activities. To determine the appropriate firefighter deployment for low, moderate, high and extreme risks occupancies within the Municipality of Clarington, an assessment of the Community Risk Profile, relevant PFSG and the NFPA 1710 and 1720 standards, and OHSA Section 21 Guidance Notes was completed. These analyses identified a best practices firefighter deployment to complete the fireground critical tasks associated with each occupancy risk level. For low risk occupancies this reflects a minimum depth of response deployment of four firefighters. For moderate risk occupancies including Group C - Residential occupancies (Single — Family Dwelling) a minimum depth of response deployment of 14 firefighters is required to complete the additional fireground critical tasks based on the 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 the nursing home referenced above 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 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. The results of the Community Risk Profile indicate that the Municipality of Clarington does not have any extreme risk occupancy's. Based on our analyses of the current PFSG's, NFPA Standards and best practices within Ontario an appropriate minimum depth of response to the low, moderate and high risks occupancies within the Municipality of Clarington to achieve the identified critical fireground tasks includes four firefighters to low risk occupancies, 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. 6.0 Fire Suppression Page - 63 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 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 Incident Search and Rescue 0 2 2 Response Initial Rapid Intervention (RIT) 0 2 2 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 In our view the current Mutual and Automatic Aid Plan and Program for the Region of Durham reflects the planning and access to additional firefighting resources that may be required in the event of an extreme risk incident within Clarington. Based on our analyses of the relevant PFSG, Industry Standards, Best Practices and the municipalities legislated responsibilities within the FPPA and OHSA determining an appropriate fire suppression deployment model utilizing the minimum firefighter deployment based on risk (Table 13 above) in conjunction with a comparison of the performance targeted within the NFPA 1720 Standard for depth of response and the NFPA 1710 performance target of a first response of four firefighters in four minutes travel time to 90% of incidents would reflect an appropriate analyses of fire suppression resource deployment within the Municipality of Clarington. This ensures that the CEFS is approaching an assured four firefighter first response with full time firefighters and relying on volunteer firefighters for their depth of response. 6.8 Current Emergency Response Overview 6.8.1 Call Volume As shown in Figure 11, emergency call volumes in Clarington remained relatively stable between 2008 and 2012, with slight increases and decreases during this period. A successful prevention and education program is expected to maintain (or decrease) call volumes during planned future population growth in Clarington. 6.0 Fire Suppression Page - 64 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 11: Emergency Call Volume by Year (2008-2012) Call Volume by Year 4000 3500 3000 N V 2500 0 d 2000 E z 1500 1000 500--m 0 2008 2009 2010 2011 2012 Year 6.8.2 Emergency Call Incident Types A more detailed analysis of emergency call response type for the period 2008 — 2012 is presented in Figure 11 below. CEFS responded to a total of 1,314 fire -related calls over the five year period (2008- 2012) resulting in an average of approximately 263 calls per year. As shown in Figure 12, the volume of fire calls has remained relatively stable. 6.0 Fire Suppression Page - 65 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 12: Historical Call Volume by Type (2008-2012) 2000 1800 0 2008 1600 0 2009 N 1400 -02010 u 1200 ■ 2011 1000 --02012— ■2012E E800 3 Z 600 400 200 0 Fire Call Volume by Type Medical Call Type The numbers of calls per incident type are shown in Figure 12. Medical call numbers trended upwards between 2008 and 2012, but only slightly. This is reflective of a growing and aging population. The number of fire calls was generally stable. It is anticipated that enhancing CEFS focus on the first two lines of defence would induce a downward trend on fire calls overtime. The fact that the fire call volume has remained stable while the Municipality has been experiencing growth is reflective of the success of the existing fire prevention resources and programs. "Other" call types decreased significantly between 2008 and 2010 and increased to a lesser extent between 2011 and 2012. 6.8.3 Percentage of Incident Type Fire -related calls made up 15% of total calls between 2008 and 2012. As shown in Figure 13, 51% of all calls from 2008 to 2012 were medical calls, the most frequent of all call types. Public hazards (17%) and rescue calls (13%) were the next most frequent type. 6.0 Fire Suppression Page - 66 D I LLON GONSUI:IING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 13: Historic Average Call Volumes (2008-2012) by Percentage Type Percentage of Calls by Type (2008-2012) 6.8.4 Response Time Assessment ■ Property Fire / Explosion - Structural (3%) ■ Property Fire / Explosion - Non -Structural (5%) ■ False fire calls (7%) Fire Related (15%) ■ Medical (51%) ■ Public hazards (17%) ■ Rescue (13%) ■ Other (5%) Response times are measured and analyzed according to percentile ranking (i.e. percentage of responses meeting a specified timeframe). The 90th percentile (i.e. where 90% or 90 out of 100 responses meet a specific response time target) is a common industry best practice for reporting and understanding emergency first responder performance. Fire services commonly utilize 90th percentile response time data for system planning and resource deployment purposes. Aggregate 90th percentiles across the historical years are displayed and discussed for comparison purposes. 6.8. S Dispatch Time Dispatch time is defined by the NFPA in a standard called "NFPA 1221 Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems", as follows: "Emergency Alarm Processing / Dispatching: A process by which an alarm answered at the communications centre is transmitted to emergency response facilities (ERFs) or the emergency response units (ERUs) in the field." 6.0 Fire Suppression Page - 67 MILLION CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 NFPA 1221 is an industry best practice for dispatch time requirements. It requires that 95% of alarms received on emergency lines shall be answered within 15 seconds, and 99% of alarms shall be answered within 40 seconds. It requires processing of the alarm call (dispatching) to be completed within 60 seconds, for 80% of all calls (80th percentile), and within 106 seconds for 95% of calls. This means that 80 out of 100 calls are required to be dispatched within 60 seconds and the 95 out of 100 calls must be dispatched within 106 seconds. There are some exceptions that have been identified. For the following call types, emergency alarm processing shall be completed within 90 seconds 90% of the time and within 120 seconds 99% of the time: • Calls requiring emergency medical dispatch questioning and pre -arrival medical instructions • Calls requiring language translation • Calls requiring the use of a TTY/TDD device or audio/video relay services • Calls of criminal activity that require information vital to emergency responder safety prior to dispatching units • Hazardous material incidents • Technical Rescue Figure 14 presents a summary of the 80th percentile of historical dispatch times from the period of 2008 to 2012. Figure 14: Historical Dispatch Times by Type (2008-2012) The aggregate 80th percentile dispatch time for fire calls is 133 seconds. This is 73 seconds longer than the recommended performance target. This means that the dispatching for fire calls is currently just over double the recommended performance target. Dispatch time for medical calls has remained relatively stable over the years. The aggregate 80th percentile is 65 seconds. This is 5 seconds over the recommended performance target. 6.0 Fire Suppression Page - 68 DILLON CONSULTING Dispatch Times - 80th Percentile 160 140 ■ 2008 120 ■ 2009 a 100 c 02010 mai 80 ■2011 E 60 M2012 40 ❑Agg. - 80th 20 0 Fire Medical Other Call Type The aggregate 80th percentile dispatch time for fire calls is 133 seconds. This is 73 seconds longer than the recommended performance target. This means that the dispatching for fire calls is currently just over double the recommended performance target. Dispatch time for medical calls has remained relatively stable over the years. The aggregate 80th percentile is 65 seconds. This is 5 seconds over the recommended performance target. 6.0 Fire Suppression Page - 68 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 The aggregate 80th percentile dispatch time for other calls is 118 seconds, almost double the recommended performance target. The Municipality of Clarington has contracted the dispatching services out to Oshawa Fire Services as of January 2013. CEFS should ensure that the agreement with Oshawa Fire Services for provision of dispatch services includes a performance measure, such as NFPA 1221. Dispatch data should be reviewed and assessed against the performance measure on an on-going basis. Any issues with performance or service should be discussed with the dispatch service provider. 6.8.6 Turnout Time Turnout time is defined by the NFPA, within the Standard for Organization and Deployment of Fire Suppression Operations by Career Fire Departments (NFPA 1710), as: "the time interval that begins when the emergency response facilities (ERFs) and emergency response unit (ERUs) notification process begins by either an audible alarm or visual annunciation of both and ends at the beginning point of travel time. " In general, it is considered to be the preparation time required between the call being received at the fire station and the time the truck and firefighters leave the station. The objective set by NFPA 1710, for career departments, is to meet a turnout time of 60 seconds or less for medical calls and 80 seconds or less for fire or special operations calls. In comparison, volunteer firefighters must first receive the call to respond (via pager) travel to the fire station and then safely staff the apparatus in preparation for response. Volunteer firefighter turnout times can vary significantly depending on the location and availability of the individual when the call is received. This variable can have a significant impact on a fire departments total response time and therefore should be monitored on an ongoing basis. Table 14 provides a summary of historical turnout times for the period of 2008 to 2012. Table 14: Historical Turnout Times by Station Consideration should be given to implementing specific strategies targeted to reduce turnout time. Identifying efficiencies can have a positive effect on total response times. Often turnout times can be improved by reporting actual turnout performance to suppression crews at each station on a monthly or quarterly basis. 6.0 Fire Suppression Page - 69 DILLON CONSUTAING 90t" Percentile Turnout Time Average Turnout Time Station (All Calls) (All Calls) Station 1- Full -Time 148 seconds Station 2 260 seconds Station 3 270 seconds Station 4 — Full -Time 149 seconds Station 5 300 seconds Consideration should be given to implementing specific strategies targeted to reduce turnout time. Identifying efficiencies can have a positive effect on total response times. Often turnout times can be improved by reporting actual turnout performance to suppression crews at each station on a monthly or quarterly basis. 6.0 Fire Suppression Page - 69 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 6.8.7 Travel Time NFPA 1710 defines travel time as: "The time interval that begins when a unit is en route to the emergency incident and ends when the unit arrives at the scene. " First Response Travel Time: The NFPA 1710 performance measure requires meeting a travel time of 240 seconds (four minutes) for the first arriving engine company (four firefighters) on -scene for 90% of calls (90th percentile). Figure 15 presents a summary of historical 90th percentile CEFS travel times for the first arriving vehicle (first response) for the period of 2008 to 2012. The historic aggregate 90th percentile first response travel times for fire related calls is 528 seconds, which is 288 seconds above the recommended performance target. The aggregate 90th percentile travel time for medical calls is 455 seconds, which is 215 seconds higher than the performance target. Finally the aggregate 90th percentile time for other calls is 535 seconds, which is 295 seconds higher than the recommended performance target. This indicates that in call cases the department is required to travel long distances to respond to an emergency call. The Municipality of Clarington has a large geography including many rural areas. These rural areas can require an extended travel time to respond to from CEFS stations. Figure 15: Historical Travel Times (First Arriving Vehicle) by Type (2008-2012) 6.8.8 Total Response Time Total Response Time is defined by the NFPA within NFPA 1710 as follows: "The time interval from the receipt of the alarm at the public safety answering point (PSAP) to when the first emergency response unit is initiating action or intervening to control the incident. " 6.0 Fire Suppression Page - 70 DILLON CONSULTING Travel Times - 90th Percentile 700 600 X2008 500 w ®2009 c400 0 ❑2010 d 300 ❑2011 d F- 200 ■2012 ■Agg. - 90th 100 0 Fire Medical Other Call Type 6.8.8 Total Response Time Total Response Time is defined by the NFPA within NFPA 1710 as follows: "The time interval from the receipt of the alarm at the public safety answering point (PSAP) to when the first emergency response unit is initiating action or intervening to control the incident. " 6.0 Fire Suppression Page - 70 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Total response time includes dispatch time, turnout time and travel time components. Figure 16 presents a summary of historical total response times for the first arriving vehicle. This data represents the period from 2008 to 2012. The total response performance measure for first response is the sum of dispatch time, turnout time and travel time. This equates to a 90'h percentile total response time of 360 seconds for medical calls and 380 seconds for fire / other calls. The aggregate 90'h percentile total response time for fire and other calls is 859 seconds and 835 seconds respectively. This is 479 seconds and 455 seconds above the recommended performance target. For medical calls the aggregate 90th percentile total response time is 675 seconds which is 315 seconds above the recommended performance target. This highlights that each component, whether dispatch time, turnout time or travel time, impacts the total response time. It is important to aim to meet the performance measure target for each of these components in order to provide the best level of service for the overall emergency response. Figure 16: Historical Total Response Times by Type 6.8.9 Historic Staffing Response Assessment First Response — Initial Personnel Responding The average initial personnel responding was assessed for fire related calls, medical calls and other calls from 2009 to 2012, across the department as a whole (operating as a composite model). These results are presented in Figure 17. For fire calls, the 2009-2012 CEFS average first response is slightly above four fighters. The average was 4.4 firefighters for 2012 fire related calls. Medical calls and other calls averaged for 2009 to 2012 have received more than three, but less than four initial personnel responding. For the period from 2009 to 2012 there were 327 calls coded as "Property Fire / Explosion — Structural." This group of calls had an average of 4.13 personnel arriving as a first response. This number reflects the best practice target of four firefighters. 6.0 Fire Suppression Page - 71 DILLON CONSUTA ING Total Response Time - 90th Percentile 1000 900 800 700 :2008 600 2009 0 ami 500 02010 400 ■2011 300 ■2012 200 ❑Agg. - 90th 100 0 Fire Medical Other Call Type 6.8.9 Historic Staffing Response Assessment First Response — Initial Personnel Responding The average initial personnel responding was assessed for fire related calls, medical calls and other calls from 2009 to 2012, across the department as a whole (operating as a composite model). These results are presented in Figure 17. For fire calls, the 2009-2012 CEFS average first response is slightly above four fighters. The average was 4.4 firefighters for 2012 fire related calls. Medical calls and other calls averaged for 2009 to 2012 have received more than three, but less than four initial personnel responding. For the period from 2009 to 2012 there were 327 calls coded as "Property Fire / Explosion — Structural." This group of calls had an average of 4.13 personnel arriving as a first response. This number reflects the best practice target of four firefighters. 6.0 Fire Suppression Page - 71 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 17: Historic First Response Staffing Assessment by Type of Call Average Initial Personnel Responding 5 4 d c ■ 2009 O W 3 ■2010 ,L ■ 2011 O y ■ 2012 E 2 ■ Avg. 3 Z 1 0 Fire Medical Other Call Type Depth of Response - Total Personnel on Scene The average total personnel responding was assessed for fire calls, medical calls and other calls from 2009 to 2012, across the department as a whole (operating as a composite model). These results are presented in Figure 18. For fire calls, the 2009-2012 CEFS average depth of response was 9.4 total personnel responding. For medical calls, the 2009-2012 CEFS average depth of response was less than four firefighters (same as the initial response). For other calls, the 2009-2012 CEFS average depth of response was 5.2 total personnel. For the period from 2009 to 2012 there were 327 calls coded as "Property Fire / Explosion — Structural." This group of calls had an average of 14.38 total personnel assembled on -scene as a depth of response. This number reflects the best practice target of 14 firefighters assembled on -scene for a moderate risk response. 6.0 Fire Suppression Page - 72 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Figure 18: Historic Depth of Response Staffing Assessment by Type of Call Average Total Personnel Responding 12 10 d _ ■ 2009 N 8 ■ 2010 a ■ 2011 o g y ■ 2012 M ;_ ■ Avg. z = 4 2 0-0 Big Fire Medical Other Call Type 6.9 Assessment of Response Coverage The following sections detail the assessment of response coverage within the Municipality of Clarington. Various methods were employed to assess the fire services emergency response coverage capabilities for existing conditions as well as for projected future conditions. A review of existing call data was carried out to determine CEFS' success in meeting established response performance targets. The analysis was carried out using ESRI's Network Analyst, a GIS tool developed specifically for the purpose of assessing networks, such as roads. 6.9.1 Methodology This section provides a brief outline of the scope and methodology used in order to provide insight into the modeling procedures adopted to assess existing and future response coverage and to test various combinations of fire suppression resources. A Geographic Information System (GIS) program was used to assess the fire service's response coverage. Digital copies of GIS layers were provided by the municipality for the existing road network. Relevant base road information, such as road length and speed, was extracted from the GIS data. The model was calibrated from the posted speed to a modelled speed, to more accurately reflect travel times of the fire response units. 6.0 Fire Suppression Page - 73 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Industry performance measures used for the response assessment were applied to two different horizons: Existing conditions (2013); and Ten year future horizon (2023). Response assessment was completed based on NFPA 1710 and NFPA 1720 as indicated previously in Section 6.6 above. For NFPA 1710 existing conditions were modelled based on the municipality's Official Plan defined urban areas of Courtice, Bowmanville and Newcastle. The municipal boundary was used to assess the municipality against NFPA 1720. The future service boundary remains the same as the urban boundary is not anticipated to change within the ten year horizon. This information, combined with the station location, was used to build graphical "response polygons" around each station. These polygons represent the coverage the station can provide in the specified amount of time. This assesses whether the municipality is providing adequate first response and depth of response coverage according to the NFPA 1710 standard and whether the municipality is providing adequate depth of response coverage according to the NFPA 1720 standard. This analysis also identifies the areas where the fire department is not currently able to achieve the response time elements or the staffing elements of the NFPA 1710 and 1720 performance measure. 6.10 Analytic Results This section documents the results of the analysis for the existing five station model under existing conditions and under future conditions with an adjusted deployment scenario and the addition of full time staff at Station #2 in Newcastle. For ease of reference, the station staffing and vehicle assignments modeled are summarized in a tabular format included within each model figure. 6.10.1 Coverage Assessment Scenarios 2013 Existing Conditions, Five Station Model This scenario is based on staffing levels as they were in 2013 and it represents the existing "do-nothing" condition at the study outset. The road network and station locations reflect the conditions in 2013. The NFPA 1710 standard for first response of four firefighters in four minutes of travel time is widely accepted as the minimum first response and best practice in order to commence limited rescue or firefighting involving a structure fire in a typical 2,000 square foot, two-storey single-family dwelling without a basement and without exposures. As the minimum staffing for first arriving apparatus (e.g. pumpers) can be as low as three firefighters, this standard is a challenge for CEFS. The modelled results indicate the distance that could be travelled from the fire stations in the urban areas of Courtice, Bowmanville and Newcastle within four minutes, by full time suppression staff (outlined in Figure 19). The NFPA 1720 supports the minimum initial response staffing to include four firefighters by stating "Initial firefighting operations shall be organized to ensure that at least four firefighters are assembled before interior fire suppression operations are initiated in a hazardous area". This particular standard recognizes that the four firefighters may not arrive on the same vehicle, but that there must be four on the scene prior to initiating any type of interior firefighting operations. Under existing conditions, the first response coverage of the first vehicle arriving on -scene within four minutes of travel time is 37% of the municipality's urban geography and 62% of the historic urban call locations. This is considered to be the baseline first response coverage. Results of the first response assessment are shown in Figure 19. There are two significant areas within the results that highlight response challenges (i.e. greater than four minute first response coverage). The first is the urban area east 6.0 Fire Suppression Page - 74 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 of Liberty Street in Bowmanville. The second is the urban areas which extend south of Highway 401. These areas are shown in gold and red on the figures (e.g. Figure 19). These figures highlight the urban areas which are served by full time suppression staff within four minutes of travel time; however, to fully comply with the NFPA 1710 standard, a crew of four firefighters would be required as minimum staffing at each station to staff the first arriving apparatus. Although the entire area of Newcastle is considered as an urban area (outlined in Figure 19), with the existing staffing Station 2 operates with volunteer suppression staff and therefore cannot meet the 1710 turnout time applicable to the standard. To model the department against the NFPA 1710 depth of response target, travel time delays were assigned to the volunteer stations to account for increased turnout time of volunteer responders. It is understood that volunteer stations have a much higher turnout time than full-time firefighters and therefore the turnout time needs to be added to the travel time when considering a full-time standard. Based on historic turnout times, a five minute delay was assigned to the volunteer crews at Stations 1, 2 and 3 and a four minute delay was assigned to the volunteer crews at Stations 4 and 5. It was assumed that the full time staff (at Stations I and 4) would have a turnout time of one minute. Taking this into consideration, the department's depth of response was modelled against the NFPA 1710 performance measure. The existing condition, with three firefighters on all pumps and two firefighters on all tankers, yields a maximum staffing of 13 firefighters to less than 1% of the urban area. The department is currently not able to meet the staffing requirements of NFPA 1710. Results of the depth of response assessment are shown in Figure 20. This is the baseline depth of response coverage. Using the same turnout time assumptions modelling was completed to assess the department's performance with regards to the NFPA 1720 performance measure. Figure 21 presents the depth of response coverage against NFPA 1720 for both the urban and rural areas within the municipality. For analysis purposes the three main urban areas as defined within the municipality's Official Plan were used for the urban boundary and the remainder of the municipality was considered to be the rural area. The standard stipulates a response time of nine minutes (turnout time + travel time). The analysis of turnout time indicates a 90th percentile turnout time of approximately five minutes for Stations 1, 2 and 3 which results in four minutes of available travel time. The turnout time for Stations 4 and 5 was four minutes, which results in five minutes of available travel time. Finally, a one minute turnout time was assumed for the full time staff at Station I and 4, which results in eight minutes of available travel time. Within the allocated travel time for each station, the department is not able to achieve the recommended 15 firefighters within the urban area. For rural areas, the standard stipulates a response time of 14 minutes (turnout time + travel time). The same turnout times were assumed. As a result, the department is able to cover 32% of the rural area and 67% of historic rural call locations. 6.0 Fire Suppression Page - 75 DILLON CONSULTING MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 19: Existing First Response • HISTORICAL FIRE CALL (2008-2012) • FIRE STATION f RAILWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY TRAVEL TIMES - < = 4 MINUTES @ NETWORK SPEED - < = 5 MINUTES @ NETWORK SPEED - > 5 MINUTES @ NETWORK SPEED "NFPA 1710: Initial arriving company, minimum of 4 firefighters responding within 4 minutes travel time to 90% of incidents" N SCALE 1:100,000 W� 0 O.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION. I_,GIS, 127214 -Ola rington FMP,,Mapping., Existing First Respocse.mx 1 DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 09/02/13 ______ ___ _________ __— _—_—_—_—_ —ti_ _ ___—_ —_— _—_—_—_—_ —_— _—_—_—_—_ —_— _—_—I f STATIONS AND STAFFING I j STATION 1 ' t Pump - 3 FT Firefighters I Pump - 3 V Firefighters I Tanker - 2 V Firefighters , I STATION 2 I-------------------------------- ---------------- Pump - 3 V Firefighters Tanker - 2 V Firefighters Regional Rd 20 STATION 3 Pump - 3 V Firefighters � Tanker - 2 V Firefighters MUNICIPALITY OF CLARINGTON y Fire Station No. 5 Pump - STATION 4 3 FT Firefighters FIRE MASTER PLAN Regional Rd 3 • Pump - 3 V Firefighters I ' - Tanker - 2 V Firefighters STATION s Figure 28: Existing Depth of Response 75Pump - 3 V Firefighters c Tanker - 2 V Firefighters Lu I I HISTORICAL FIRE CALL (2008-2012) # of %Area I % calls • FIRE STATION Firefighters covered I covered (6 L • -------------------------------- _ _ f RAILWAY o m 0 17% ° I 1/ 0 3 83% 99% � FREEWAY I � Ganaraska 6 46% 75% — ARTERIAL 8 44% 71% { 11 7% 13% COLLECTOR 13 1% 0% I I LOCAL •Taunton Taunton i WATERBODY -- 1I . I L—_� MUNICIPAL BOUNDARY Fire Station No 3 , / DEPTH OF RESPONSE • i TOTAL NUMBER OF FIREFIGHTERS REACHING YII AREA WITHIN 8 MINUTES OF TRAVEL TIME ?ebblestone I I t\ i I 0 FIREFIGHTERS i U) 3 O ; 3 FIREFIGHTERS N 6 FIREFIGHTERS - U 8 FIREFIGHTERS Nash 11 FIREFIGHTERS ••!`�--'- 13 FIREFIGHTERS t N n 0 9 = 7 1.' • N 117 Fire Station No. 41 U) J J M Bloor Fire Station rNo. 1 I Fire Station No. 2 Baseline `,♦ Regional High wa Y 2 I Conces; AN O 0.5 1 2 3 krri � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY. SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—c! \\\\\\\\\\\\\\h00000- PROJECT: 12-7214 DIL-.ON STATUS: DRAFT CONSULTING DATE: 09/02/13 a! Fire Station No. 5 ty. Ir5 T9 � c � a • � Taunfali l'auntoll R • I FireStation No. 4 Fire Station No. 1 I • 4 Fire Station No 3 F- c NFPA 1720: � minimum I Total 1 objective Demand ZaneStaff ------------ I Response T7me I M ----------------------- urban 15 1 9 1 90% Rural S I 14 80'% Total Response I % Area % calls Time I covered covered ------------------------------------------+------------------ -'----- >= 15 FF in < = 9 min 1 0% of Urban Area 1 0% of urban Call >= 6 FF in < = 14 min 1 32% of Rural Area 1 67% of Rural call STATIONS AND STAFFING j STATION 1 Pump - 3 FT Firefighters Pump - 3 V Firefighters Tanker - 2 V Firefighters STATION 2 j Pump - 3 v Firefighters Tanker - 2 v Firefighters I STATION 3 � Pump - 3 V Firefighters Tanker - 2 V Firefighters STATION 4 Pump - 3 FT Firefighters I Pump - 3 V Firefighters Carlar�ska Tanker - 2 V Firefighters STATION 5 Pump - 3 V Firefighters 10 Tanker - 2 V Firefighters I J • I I I I I 1 I I I I I e on,al Ni Y� r I `'•� � � {CQn GBS I fl f'�d ') * I MUNICIPALITY OF CLARINGTAN FIRE MASTER PLAN Figure 21: Existing Depth of Response— NFhA 1720 HISTQRI<�AL FIRE QALL (2000-2412) FIFE STATION f RAILWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERRODY r— MUNICIPAL BOUNDARY URBAN ROUNDAR'Y TOTAL RESPONSE TIMES {TURNOUT + TRAVEL TIME) - _ FF IN -= 14 MINUTES _ RURALSTANDARD [ 5 FF OR >14 MINUTES = 15 FF IN c= 9 MINUTES URBAN STANDARD 15 FF OR �9 MINUTES a 13 5 1 2 3 lan MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARMTON MAP CREATED BY SLS MAP CHECKED BY SLC MAP PROJECTION: NAD 1983.UTM ZDne 17N FILE LOCATION. I.YaI5112721.7. - Glann roll fMP.M3PW9 . EXiaiena Fret ReaPonea.M'IXC PROJECT, 12-7214 DIMON _>< ON STATUS: DRAFT CONSULTING LATE: 09ft2 13 Municipality of Clarington Fire Master Plan Final Report — February 2014 Existing Conditions — Revised Minimum Vehicle Staffing This scenario evaluates the coverage that would be expected if the department were to staff all pumps with four firefighters and all tankers with two firefighters. The initial response results would remain the same as those modelled in the existing conditions scenario (37% of urban geography covered and 27% of urban historic calls covered), however, the standard would be full met in these areas as the four firefighters per apparatus would be achieved in addition to the four minute response time coverage. To model the department against the NFPA 1710 depth of response target, the same turnout time assumptions as described above were applied to the stations. Taking this into consideration, the department's depth of response was modelled against the NFPA 1710 performance measure. The existing condition, with four firefighters on all pumps and two firefighters on all tankers, yields a maximum staffing of 16 firefighters to less than 1% of the urban area. The department is able to achieve a staffing of 14 firefighters to 8% of the urban area and 13% of the historical urban call locations. Results of the depth of response assessment are shown in Figure 22. Again, applying the same turnout time assumptions, modelling was completed to assess the department's performance with regards to the NFPA 1720 performance measure. Figure 23 presents the depth of response coverage against NFPA 1720 for both the urban and rural areas within the municipality. The standard stipulates a response time of nine minutes (turnout time + travel time). Within the allocated travel time for each station, the department is not able to achieve the recommended 15 firefighters within the urban area. However, the department can achieve a staffing level of 14 firefighters to 8% of the urban area and 13% of the historic urban call locations. For rural areas, the department is able to cover 64% of the rural area and 98% of historic rural call locations. This represents a significant improvement from the existing staffing scenario. 6.0 Fire Suppression Page - 79 DILLON CONSULTING I MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 22: Revised Minimum Staffing Depth of Response • HISTORICAL FIRE CALL (2008-2012) • FIRE STATION f RAILWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY DEPTH OF RESPONSE TOTAL NUMBER OF FIREFIGHTERS REACHING AREA WITHIN 8 MINUTES OF TRAVEL TIME - 0 FIREFIGHTERS - 4 FIREFIGHTERS - 6 FIREFIGHTERS - 8 FIREFIGHTERS - 10 FIREFIGHTERS 14 FIREFIGHTERS - 16 FIREFIGHTERS N 0 0.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LC—TIDIN i ,GIS,12 1 � 3!a,i ,o,. FMP f NPIng, ExIstll�.y Flrst Fes Pul�.sc--.,,^1a c DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 09/02/13 I I I I I I I I I� I I 1 I I I • LL --_—_______—___y_—._,_—_ J NFPA 1720: I Minimum I Total I objective Demand zone ------------I---------I---------------I---------- staff Response Time I M urban 15 9 90% Rural 6 14 80% MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 23. Revised 'Minimum Staffing Depth nl' Response — N FPA 1720 • HISTORICAL FIRE CALL (2008-2012) f RAILWAY FREEWAY - ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY TOTAL RESPONSE TIMES (TURNOUT + TRAVEL TIME) - > = 6 FF IN <_ 14 MINUTES RURALSTANDAR < 6 FF OR >14 MINUTES > = 14 FF IN <= 9 MINUTES > = 15 FF IN <= 9 MINUTES URBAN STANDARD = < 15 FF OR >9 MINUTES 0 0.5 1 2 3 km MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d r r LO�N PROJECT: 12-7214 DILSTATUS: DRAFT CONSULTING DATE: 09/02/13 AN s Municipality of Clarington Fire Master Plan Final Report — February 2014 Existing Conditions — Full Time Staff at Station 2 This scenario evaluates the coverage that would be expected if the department were to staff all pumps with four firefighters and all tankers with two firefighters. An additional pump with a crew of four full time firefighters was also added to Station 2. These first response results are shown in Figure 24 The response results for first response, measured within the urban areas of Bowmanville, Courtice and Newcastle in this scenario result in 46% of urban area and 33% of urban historic calls being covered with four firefighters within four minutes of travel time. To model the department against the NFPA 1710 depth of response target, the same turnout time assumptions as described above were applied to the stations. A turnout time of one minute was assumed for the new full time crew at Station 2. Taking this into consideration, the department's depth of response was modelled against the NFPA 1710 performance measure. This scenario yields a maximum staffing of 14 firefighters to 21% of the urban area and 41% of historic urban area call locations. Results of the depth of response assessment are shown in Figure 25. Again, applying the same turnout time assumptions, modelling was completed to assess the department's performance with regards to the NFPA 1720 performance measure. Figure 26 presents the depth of response coverage against NFPA 1720 for both the urban and rural areas within the municipality. The standard stipulates a response time of nine minutes (turnout time + travel time). Within the allocated travel time for each station, the department is not able to achieve the recommended 15 firefighters within the urban area. However, the department can achieve a staffing level of 14 firefighters to 21% of the urban area and 41% of the historic urban call locations. The addition of full time staff at Station 2 greatly improves the department's urban area coverage. For rural areas, the department is able to cover 64% of the rural area and 98% of historic rural call locations. 6.0 Fire Suppression Page - 82 DILLON CONSULTING MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 24: First Response Results, Full Time Crew at 'Station 2 • HISTORICAL FIRE CALL (2008-2012) • FIRE STATION f RAILWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY TRAVEL TIMES - < = 4 MINUTES @ NETWORK SPEED - < = 5 MINUTES @ NETWORK SPEED - > 5 MINUTES @ NETWORK SPEED "NFPA 1710: Initial arriving company, minimum of 4 firefighters responding within 4 minutes travel time to 90% of incidents" N SCALE 1 :100,000 W� 0 0.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION. I_,GIS, 127214 -Ola rington FMP,,Mapping., Existing First Respocse.mx 1 DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 09/02/13 --------------------------------------------------- R egiona ---------------------------------- —Regional Rd 20 I ii Fire Station No. 5 j Regional Rd 3 'N. I I I a •� 'E W I I 1 I I I L_—_—_______—___s_--_,_— —_—_ # of % Area % calls Firefighters covered covered -------------+----------+--------- 0 14% 0% 4 86% 100% 6 63% 91% 8 63% 91% 10 54% 78% 14 21% 41% 20 1% 0% STATIONS AND STAFFING STATION 1 Pump - 4 FT Firefighters Pump - 4 V Firefighters Tanker - 2 V Firefighters STATION 2 Pump - 4 FT Firefighters Pump - 4 V Firefighters Tanker - 2 V Firefighters STATION 3 Pump - 4 V Firefighters U) RAILWAY - FREEWAY • ' - Ip Tanker - 2 V Firefighters ; N - MUNICIPAL BOUNDARY QURBAN L a(B r STATION 4 • • I Nash Pump - 4 FT Firefighters o - v Pump 4 V Firefighters a, - o 00 Tanker - 2 V Firefighters � _ Ganaraska I • STATION 5 } L "' BIOor Pump - 4 V Firefighters i Tanker - 2 V Firefighters I Fire Station No. • ' . L• l Fire Station No. 2 Baseline _ • • � I Taunton j (6 �w Taunton j _ • J / Fire Station No 3 j - \ Concession Rc w i . I I Pebblestone* _ O _ E i U) RAILWAY - FREEWAY - ARTERIAL - Ip - LOCAL ; WATERBODY - MUNICIPAL BOUNDARY QURBAN Y r • • I Nash o •r - o _ � _ I Fire Station No. 4 �� 'I• L "' BIOor Fire Station No. • ' . L• l Fire Station No. 2 Baseline _ • c (6 �w rJ _ a Re( _Ilona/ Highway 2 - \ Concession Rc w i . MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 25. Depth n1 Response, Full Time Crew at Station 2 • HISTORICAL FIRE CALL (2008-2012) f RAILWAY - FREEWAY - ARTERIAL - COLLECTOR - LOCAL WATERBODY - MUNICIPAL BOUNDARY QURBAN BOUNDARY TOTAL NUMBER OF FIREFIGHTERS REACHING AREA WITHIN 8 MINUTES OF TRAVEL TIME - 0 FIREFIGHTERS - 4 FIREFIGHTERS - 6 FIREFIGHTERS - 8 FIREFIGHTERS - 10 FIREFIGHTERS 14 FIREFIGHTERS - 20 FIREFIGHTERS 0 0.5 1 2 3 km MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d 00 \\\\\\\\\\\\\\\\\1/ PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 09/02/13 I I I I I I I I I� I I� I I w I I I I I I i I I I jTaunton I . I '�ebblestone U) Fire Station No. 5 • Nash y Fire Station No. 4 Fire Station No. 1 Baseline Fire Station No 3 O U J � Fire Station No. 2 k ' - - TOTAL RESPONSE TIMES (TURNOUT + TRAVEL TIME) - NFPA 1720: I Minimum I Total I objective > = 14 FF IN <= 9 MINUTES Demand zone staff Response Time I M —F-+ j ------------ --------- urban --------------- 15 9 ---------- 90% 1 Rural 6 14 80% Total Response % Area % Calls Time covered covered ------------------+-------------------+------------------- ---------------------, >=14 FF in < = 9 min >= 15 FF in < = 9 min 21% of urban Area 1% of urban Area 41% of urban calls 0% of urban calls • >= 6 FF in < = 14 min 64% of Rural Area 98% of Rural Calls MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN STATIONS AND STAFFING I STATION 1 )~ Ig111'e 26: Depth of Response — Pump - 4 FT Firefighters 'II Pump - 4 V Firefighters `iii NFPA 1720, Fall Time Crete' at S(ation 2 Tanker - 2 V Firefighters I I STATION 2I HISTORICAL FIRE CALL (2008-2012) Pump - 4 FT Firefighters Pump - 4 V Firefighters FIRE STATION • Tanker - 2 V Firefighters • STATION 3 f RAILWAY Pump - 4 V Firefighters - FREEWAY Tanker - 2 V Firefighters - ARTERIAL Ganaraska STATION 4 Pump - 4 FT Firefighters COLLECTOR ' Pump - 4 V Firefighters Tanker - 2 V Firefighters LOCAL STATION 5 I I WATERBODY Pump - 4 V Firefighters _ Tanker - 2 V Firefighters L^_J MUNICIPAL BOUNDARY • 1 1 URBAN BOUNDARY Fire Station No 3 O U J � Fire Station No. 2 k ' - - TOTAL RESPONSE TIMES (TURNOUT + TRAVEL TIME) - > = 6 FF IN <_ 14 MINUTES RURALSTANDARD < 6 FF OR >14 MINUTES > = 14 FF IN <= 9 MINUTES > = 15 FF IN <= 9 MINUTES URBAN STANDARD - < 15 FF OR >9 MINUTES 0 0.5 1 2 3 km MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DIL -ON STATUS: DRAFT CONSULTING DATE: 09/02/13 Municipality of Clarington Fire Master Plan Final Report — February 2014 Existing Conditions —Automatic Aid Impacts This scenario displays the impacts of automatic aid agreements with the City of Oshawa and the Municipality of Port Hope. Figure 27 displays the travel time for Oshawa and Port Hope fire stations. Station 5 in the City of Oshawa is able to reach a large portion of the Courtice urban area in eight minutes or less of travel time. The Port Hope fire stations have minimal impact on being able to provide coverage within the municipal boundary. 6.0 Fire Suppression Page - 86 DILLON CONSULTING 1 • =j - _ FREEWAY Travel Time % Area I % calls — COLLECTOR (minutes) covered I covered -------------+----------+--------- •! <=4 I 46% I 69% <=5 I 61% I 80% >5 I 39% I 20% Note: 59% of all Clarington's fire calls occur within the urban area. JL— • &IFICre "101 t - - TL kr .. •. MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 27: Existing Conditions — Automatic Aid Impacts • HISTORICAL FIRE CALL (2008-2012) =j • FIRE STATION f RAILWAY FREEWAY ARTERIAL — COLLECTOR LOCAL WATERBODY —_� MUNICIPAL BOUNDARY QURBAN BOUNDARY TRAVEL TIMES - < = 4 MINUTES @NETWORK SPEED - < = 5 MINUTES @NETWORK SPEED "- • AUTOMATIC AID - TRAVEL TIMES O< = 4 MINUTES @ NETWORK SPEED 41- Aiwm ji �,- < = 8 MINUTES @NETWORK SPEED �.� Fire StationNo.4 ' - � "NEPA 1710: Initial arriving company, I�T: minimum of 4 firefighters responding within 4 minutes travel time to 90% • i' Fire Station No. 1iF� n • r :1 Port Hope of incidents" i _ ..� .• Fire Station No. 2 Fire Station No. 2 (� 1 n. • . r� , _ Regional Highway 2 , I` - I w • � • • � -� _ • I O 0.5 1 2 3km � MAP DRAWING INFORMATION: �l \ DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON -� •L • _I MAP CREATED BY. SLS MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N ` FILE LOCATION: I:\GIS\127214-Clarington FMP\Mapping\ Existing First Response—d L"er-1011 PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 09/02/13 © Harris Corp, Earthstar Geographics LLC State of Michigan Municipality of Clarington Fire Master Plan Final Report — February 2014 Future Conditions — Do Nothing This scenario evaluates the coverage that would be expected within the future (2023) horizon. This horizon incorporates a revised road network to reflect the predicted ten-year development of the municipality. The staffing assumptions in this scenario models three firefighters on all pumps and two firefighters on all tankers. The same turnout time assumptions made in the existing conditions were made when modelling response times. The first response coverage of the first vehicle arriving on -scene within four minutes of travel time is 38% of the municipality's geography. Results of the first response assessment are shown in Figure 28. There are two significant areas within the results that highlight response challenges (i.e. greater than four minute first response coverage). The first is the urban area east of Liberty Street in Bowmanville. The second is the urban areas south of Highway 401. These areas are shown in gold and red on the figures. Future development areas are also noted on the figure. It's important to note that that majority of future growth in Bowmanville is planned east of Liberty Street where the department is not able to achieve a first response of four minutes or less. To model the department against the NFPA 1710 depth of response target, travel time delays were assigned to the volunteer stations. Taking this into consideration, the department's depth of response was modelled against the NFPA 1710 performance measure. The future do nothing scenario, with three firefighters on all pumps and two firefighters on all tankers, yields a maximum staffing of 13 firefighters to 2% of the urban area. The department is currently not able to meet the staffing requirements of NFPA 1710. Results of the depth of response assessment are shown in Figure 29. Using the same turnout time assumptions modelling was completed to assess the department's performance with regards to the NFPA 1720 performance measure. Figure 30 presents the depth of response coverage against NFPA 1720 for both the urban and rural areas within the municipality. For analysis purposes the three main urban areas as defined within the municipality's Official Plan were used for the urban boundary and the remainder of the municipality was considered to be the rural area. The standard stipulates a response time of nine minutes (turnout time + travel time). The analysis of turnout time indicates a 90th percentile turnout time of approximately five minutes for Stations 1, 2 and 3 which results in four minutes of available travel time. The turnout time for Stations 4 and 5 was four minutes, which results in five minutes of available travel time. Finally, a one minute turnout time was assumed for the full time staff at Station I and 4, which results in eight minutes of available travel time. Within the allocated travel time for each station, the department is not able to achieve the recommended 15 firefighters within the urban area. For rural areas, the standard stipulates a response time of 14 minutes (turnout time + travel time). The same turnout times were assumed. As a result, the department is able to cover 32% of the rural area. 6.0 Fire Suppression Page - 88 DILLON CONSULTING � I ,r _ I Fire S[ation No. 5 zep n I Oshawa Fire Station No. 5 I Taunton I Pebblestone c ,• a co i _L4ft -1 1 1 1 IMMURE II I' I - _ I Travel Time % Area covered --(minutes) --+---------- <=4 38% <=5 >5 52% MUNICIPALITY OF CLARINGTON 48% FIRE MASTER PLAN Figure 28: Future Do Nothing —Firs( Response Port Hope Fire Station No. 3 GanoraSka I I I Fire Station No 3 I E LO Station No. 4 ♦♦ N-1 C Fire Station No. 1 ��,- Port Hope Fire Station No. 2 I � Regional Hi ghuray 2 401 \ �\\ X .�H-��. '�,•,( gyp'♦ • FIRE STATION I RAILWAY - FREEWAY - ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY OURBAN BOUNDARY FUTURE URBAN RESIDENTIAL & SPECIAL STUDY AREAS TRAVEL TIMES - < = 4 MINUTES g NETWORK SPEED < = 5 MINUTES @ NETWORK SPEED = > 5 MINUTES g NETWORK SPEED AUTOMATIC AID - TRAVEL TIMES ® < = 4 MINUTES @ NETWORK SPEED < = 8 MINUTES g NETWORK SPEED "NFPA 1710: Initial arriving company, minimum of 4 firefighters responding within 4 minutes travel time to 90% of incidents" N w O 0.5 1 2 3 km � a-, s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED BY: BOB MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/15/13 31 ---------------I I I I ------------------------------ r •'7 © Harris Corp, Earthstar Geographics LLC State of Michigan y\\\\\\q\NUVIV000000 PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 AN AUTOMATIC AID - TRAVEL TIMES - < = 4 MINUTES @ NETWORK SPEED Port Hope Y # of % Area Station No. 2 \ Firefighters I Covered 4 r� ^� ------------------------ ------------+----------;'- 0.5 1 2 3 km 6"'- 0 6% MAP DRAWING INFORMATION: s 1 5 67/ 1' MAP CREATED BY: SDB 6 55% MAP CHECKED BY: SLS 8 52% MAP PROJECTION: NAD 1983 UTM Zone 17N k 11 10% Existing First Response—ol 13 2% MUNICIPALITY OF CLARINGTON STATIONS AND STAFFING FIRE MASTER PLAN STATION 1 Pump - 3 FT Firefighters Pump - 3 V Firefighters Tanker - 2 V Firefighters Figure 29, Depth of Response, STATION 2 1N FPA 1710 - Future Do Nothing _________________ Pump - 3 V Firefighters 1, Tanker - 2 V Firefighters z • FIRE STATION STATION 3 Pump - 3 V Firefighters t RAILWAY Tanker - 2 V Firefighters FREEWAY STATION 4 Pump - 3 FT Firefighters _ 4 ARTERIAL Pump - 3 V Firefighters j I Tanker - 2 V Firefighters COLLECTOR STATION 5 _ LOCAL I Pump - 3 V Firefighters 4.. Tanker - 2 V Firefighters WATERBODY Port Hope BOUNDARY .--.I Station No. 3 QURBAN BOUNDARY I FUTURE URBAN RESIDENTIAL &SPECIAL STUDY AREAS I K ' DEPTH OF RESPONSE (Total number of firefighters reaching I area within 8 minutes of travel time) i < 3 FIREFIGHTERS I - 3 FIREFIGHTERS 5 FIREFIGHTERS - 1a 6 FIREFIGHTERS I I 3 8 FIREFIGHTERS i - , f 11 FIREFIGHTERS r •'7 © Harris Corp, Earthstar Geographics LLC State of Michigan y\\\\\\q\NUVIV000000 PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 AUTOMATIC AID - TRAVEL TIMES - < = 4 MINUTES @ NETWORK SPEED Port Hope < = 8 MINUTES @ NETWORK SPEED Station No. 2 N W�O 0.5 1 2 3 km F i MAP DRAWING INFORMATION: s DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON 1' MAP CREATED BY: SDB MAP CHECKED BY: SLS _ MAP PROJECTION: NAD 1983 UTM Zone 17N k FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—ol r •'7 © Harris Corp, Earthstar Geographics LLC State of Michigan y\\\\\\q\NUVIV000000 PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 ------------------- NFPA 1720: Minimum Total objective Demand zone staff Response Time I M ------------I---------I---------------I---------- urban 15 9 90% Rural 1 6 1 14 1 80% Total Response % Area Time covered ----------------------+------------------- >= 15 FF in < = 9 min 0% of urban Area >= 6 FF in < = 14 min 32% of Rural Area STATIONS AND STAFFING ss STATION 1i Pump - 3 FT Firefighters Pump - 3 V Firefighters Tanker - 2 v Firefighters - STATION 2 Pump - 3 FT Firefighters Pump - 3 V Firefighters��� Tanker - 2 v Firefighters STATION 3 Pump - 3 V Firefighters ;. Tanker - 2 v Firefighters u STATION 4. Pump - 3 FT Firefighters Port Hope Pump - 3 V Firefighters Station No. 3 x� Tanker - 2 v Firefighters -- STATION 5 Pump - 3 V Firefighters Tanker - 2 v Firefighters I Port Hope Station No. 2 ,r JR J MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 30: Depth of Response, NFPA 1720 - Future Do Nothing • FIRE STATION f RAI LWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY OURBAN BOUNDARY TRAVEL TIMES - > = 6 FF IN <= 14 MINUTES RURALSTANDARD < 6 FF OR >14 MINUTES >=75 FF OR <=9 MINUTES URBAN STANDARD - < =75 FF OR >9 MINUTES AUTOMATIC AID - TRAVEL TIMES O< = 4 MINUTES @ NETWORK SPEED �Y < = 8 MINUTES 9 NETWORK SPEED AN 0 0.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED BY: SDB MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 10/18/13 Municipality of Clarington Fire Master Plan Final Report — February 2014 Future Conditions — Revised Minimum Staffing and Full Time Staff at Station #2 This scenario evaluates the future conditions with an ideal minimum staffing of four firefighters on all pumps, two firefighters on all tankers and an additional pump with four full time staff at Station 2. This horizon incorporates a revised road network to reflect the predicted ten-year development of the municipality. To model the department against the NFPA 1710 depth of response target, travel time delays were assigned to the volunteer stations. Taking this into consideration, the department's depth of response was modelled against the NFPA 1710 performance measure. This scenario, with four firefighters on all pumps and two firefighters on all tankers and full time staff at Station 2, yields a coverage of 14 firefighters to 28% of the urban area. Results of the depth of response assessment are shown in Figure 31. Using the same turnout time assumptions modelling was completed to assess the department's performance with regards to the NFPA 1720 performance measure. Figure 32 presents the depth of response coverage against NFPA 1720 for both the urban and rural areas within the municipality. For analysis purposes the three main urban areas as defined within the municipality's Official Plan were used for the urban boundary and the remainder of the municipality was considered to be the rural area. The standard stipulates a response time of nine minutes (turnout time + travel time). The analysis of turnout time indicates a 90th percentile turnout time of approximately five minutes for Stations 1, 2 and 3 which results in four minutes of available travel time. The turnout time for Stations 4 and 5 was four minutes, which results in five minutes of available travel time. Finally, a one minute turnout time was assumed for the full time staff at Station 1 and 4, which results in eight minutes of available travel time. Within the allocated travel time for each station, the department can achieve a response of 14 firefighters to 28% of the urban area and greater or equal to 15 firefighters to 2% of the urban area. For rural areas, the standard stipulates a response time of 14 minutes (turnout time + travel time). The same turnout times were assumed. As a result, the department is able to cover 65% of the rural area. The summary of all the analytical results are shown below in Table 15. 6.0 Fire Suppression Page - 92 DILLON CONSULTING I� ------------- I area Within 8 minutes of travel time) - 0 FIREFIGHTERS 4 FIREFIGHTERS 6-8 FIREFIGHTERS - 10-12 FIREFIGHTERS 14 FIREFIGHTERS 18 FIREFIGHTERS 20 FIREFIGHTERS AUTOMATIC AID - TRAVEL TIMES Q< = 4 MINUTES @ NETWORK SPEED OPort Hope < = 8 MINUTES @ NETWORK SPEED Station No. 2 N w�O 0.5 1 2 3 km � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED Be. SOB I MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 © Harris Corp, Earthstar Geographies LLC State of Michigan 18 R 2% # of % Area 20 Firefighters Covered -------------+---------- FIRE MASTER PLAN 0 5% 4 6-8 10-12 95% 76% 63% i 14 28% I area Within 8 minutes of travel time) - 0 FIREFIGHTERS 4 FIREFIGHTERS 6-8 FIREFIGHTERS - 10-12 FIREFIGHTERS 14 FIREFIGHTERS 18 FIREFIGHTERS 20 FIREFIGHTERS AUTOMATIC AID - TRAVEL TIMES Q< = 4 MINUTES @ NETWORK SPEED OPort Hope < = 8 MINUTES @ NETWORK SPEED Station No. 2 N w�O 0.5 1 2 3 km � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED Be. SOB I MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 © Harris Corp, Earthstar Geographies LLC State of Michigan 18 R 2% I area Within 8 minutes of travel time) - 0 FIREFIGHTERS 4 FIREFIGHTERS 6-8 FIREFIGHTERS - 10-12 FIREFIGHTERS 14 FIREFIGHTERS 18 FIREFIGHTERS 20 FIREFIGHTERS AUTOMATIC AID - TRAVEL TIMES Q< = 4 MINUTES @ NETWORK SPEED OPort Hope < = 8 MINUTES @ NETWORK SPEED Station No. 2 N w�O 0.5 1 2 3 km � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED Be. SOB I MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 © Harris Corp, Earthstar Geographies LLC State of Michigan 18 2% MUNICIPALITY OF CLARINGTON 20 2% FIRE MASTER PLAN STATIONS AND STAFFING STATION 1 Figure 31: Depth of Response — NFPA 1710, r" Pump - 4 FT Firefighters Pump - 4 V Firefighters Future Full Time Crew at Station 2 Tanker - 2 V Firefighters STATION 2 • FIRE STATION Pump - 4 FT Firefighters 1 Pump - 4 V Firefighters _ RAILWAY Tanker - 2 V Firefighters FREEWAY STATION 3 Pump - 4 V Firefighters ARTERIAL Tanker - 2 V Firefighters STATION 4 — COLLECTOR Pump - 4 FT Firefighters LOCAL Pump - 4 V Firefighters Tanker - 2 V Firefighters WATERBODY STATION 5 L— MUNICIPAL BOUNDARY Pump - 4 V Firefighters Tanker - 2 V Firefighters Q URBAN BOUNDARY --�I I �Hope W11' FUTURE URBAN RESIDENTIAL & SPECIAL STUDY AREAS DEPTH OF RESPONSE � (Total number of firefighters reaching I area Within 8 minutes of travel time) - 0 FIREFIGHTERS 4 FIREFIGHTERS 6-8 FIREFIGHTERS - 10-12 FIREFIGHTERS 14 FIREFIGHTERS 18 FIREFIGHTERS 20 FIREFIGHTERS AUTOMATIC AID - TRAVEL TIMES Q< = 4 MINUTES @ NETWORK SPEED OPort Hope < = 8 MINUTES @ NETWORK SPEED Station No. 2 N w�O 0.5 1 2 3 km � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON MAP CREATED Be. SOB I MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing First Response—d PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 © Harris Corp, Earthstar Geographies LLC State of Michigan w"W >= 6 FF in < = 14 min 1 65% of Rural Area MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN STATIONS AND STAFFING Y STATION 1\ Figure 32, Depth Lal'Response — NFPA 1720, Pump - 4 FT Firefighters Pump - 4 V Firefighters Future Full Time Crew at Station 2 Tanker - 2 V Firefighters STATION 2 L • FIRE STATION Pump - 4 FT Firefighters 4 Pump - 4 V Firefighters_ RAILWAY Tanker - 2 V Firefighters III� FREEWAY STATION 3 Pump - 4 V Firefighters ARTERIAL Tanker - 2 V Firefighters tir .4 STATION 4 - � COLLECTOR Pump - 4 FT Firefighters LOCAL Pump - 4 V Firefighters Tanker - 2 V Firefighters WATERBODY STATION 5 I L_ J MUNICIPAL BOUNDARY Pump - 4 V Firefighters Tanker - 2 V Firefighters Q URBAN BOUNDARY FUTURE URBAN RESIDENTIAL & SPECIAL STUDY AREAS I Port Hope TOTAL RESPONSE TIMES Station No. 3 (TURNOUT + TRAVEL TIME) I a ` > = 6 FF IN <= 14 MINUTES I < 6 FF OR >14 MINUTES I I > = 14 FF IN <= 9 MINUTES I > = 15 FF IN <= 9 MINUTES I ' < 15 FF OR >9 MINUTES I AUTOMATIC AID - TRAVEL TIMES < = 4 MINUTES @NETWORK SPEED I Q < = 8 MINUTES @ NETWORK SPEED I I , i .. Port Hope I N Station No. 2 0 0.5 1 2 3 km w I � I _ s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MUNICIPALITY OF CLARINGTON ! MAP CREATED BY: SDB I' MAP CHECKED BY: SLS MAP PROJECTION: NAD 1983 UTM Zone 17N I•• FILE LOCATION:o\127214 - Clarington FMP\Mapping\ 1= Existing First Responsnse.mxd I I i PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 10/18/13 © Harris Corp, Earthstar Geographics LLC State of Michigan Municipality of Clarington Fire Master Plan Final ReportFehruary 2014 Table 15: Summary of Analytic Results (Emergency Response Assessment) 6.0 Fire Suppression Page - 95 D I LLON NFPA 1710 NFPA 1720 Risk Assessment (See Appendix 1) NFPA 1710 (Delays applied to (Full time and Assessment / Standard (Travel Time) volunteer crews) volunteer crews) First Risk Area % of Risk Area % of Risk Area % of Response % Depth of Response % Area Covered Urban Coverage Urban Coverage Rural Coverage Area I Area 4 min Area 8 min Area 14 min Urban Rural 14 FF 15 FF 6 FF <=4 <=5 0 4 8 14 Low Mod High Low Mod High Low Mod High Scenario Description < 9 < 9 < 14 min. min. min. 37% 51% Existing Conditions 17% - 44% 0% - 0% 32% 3 firefighter Min. Staffing 33% 58% 73% 91% 99% 100% 91% 99% 100% 37% 51% Existing Conditions - 17% 83% 46% 8% 8% 0% 64% 4 firefighter Revised Minimum Staffing Min. Staffing Existing Conditions - Full 46% 61% 14% 86% 54% 1% 21% 0% 64% Time at Station 2 Future Conditions - "Do 38% 52% 6% - 52% 0% - 0% 32% 3 firefighter Nothing" Min. Staffing 5% 95% 76% 28% 28% 2% 65% 34% 59% 75% 89% 99% 100% 31% 49% 61% Future Conditions - Revised Minimum Staffing 47% 62% with Full Time at Station 2 6.0 Fire Suppression Page - 95 D I LLON Municipality of Clarington Fire Master Plan Final ReportFebruary 2014 6.11 Staffing Considerations Figure 33: Average Initial Personnel Responding — All Call (2009 — 2012) Average Initial Personnel Responding (all calls) 6 5 d c 2009 N 4 ■ 2010 d Q_ ■ 2011 o 3 -2012 1 d ■ Avg z 2 z 1 0 FTI V1 2 3 FT4 V4 5 Station On average, over the past four years, the initial responding personnel of the full-time crews at Station 1 and Station 4 have both been more than three, but less than four firefighters. In 2012 the average at both stations was very close to four. The average initial volunteer response at all stations for all calls has been more than four, but less than five for the period from 2009 to 2012. Figure 34: Average Initial Personnel Responding — Fire Calls (2009-2012) Average Initial Personnel Responding (fire calls) 6 5 a� ■ 2009 m 4 © 2010 a 2011 3 ■ 2012 L d n ■ Avg E 2 z 1 0 FT1 V1 2 3 FT4 V4 5 Station 6.0 Fire Suppression Page - 96 D I LLON I O\'I I I IN(; Municipality of Clarington Fire Master Plan Final Report — February 2014 Fire fire calls from 2009 to 2012, the average initial responding personnel at Station 1 was four firefighters and just under four at Station 4, with 2012 showing just more than four on average at both Stations. For fire calls the average initial volunteer response at Stations 2, 3 and 5 was close to, but just less than five firefighters. At Stations land 4 the average 2009 to 2012 volunteer initial response was just more than four. Figure 35: Average Total Personnel Responding — All Calls (2009-2012) Average Total Personnel Responding (all calls) a 7 m6 ■ 2009 0 H 5 m2010 CD 2011 °4 L ■ 2012 Q 3 ■Avg E z 2 1 0 HIM 11 HIM FTI V1 2 3 FT4 V4 5 Station The total average full time response at Stations 1 and 4 was just over four fighters for all calls from 2009 to 2012. The total average volunteer response for all calls from 2009 to 2012 was just more than six firefighters at all stations except Stationl, where it was just less than six. Figure 36: Average Total Personnel Responding — Fire Calls (2009-2012) Average Total Personnel Responding (fire calls) 21 20 18 c 16 ■ 2009 015 n 14 ■2010 13 0-12 ■ 2011 110 ■ 2012 g ■ Avg. = 7 z 5 4 3 2 1- MEMO 0 NE. MMEMMI FT1 V1 2 3 FT4 V4 5 Station 6.0 Fire Suppression Page - 97 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 For fire calls from 2009 to 2012 the average full time response was just over eight firefighters at Stations 1 and 4 and the average total volunteer response was just over ten at Stations 1 and 2, eleven at Station 3, and 13 at Stations 4 and 5. As a result of the analysis of the Suppression Division, a number of staffing related considerations are recommended within this Fire Master Plan. 6.11.1 Volunteer Suppression Operations All five of the existing CEFS stations house a complement of 25 volunteer suppression staff, including one volunteer District Chief and four volunteer Captains per station. Recruitment and retention of volunteer firefighters continues to be a major challenge for the fire service across Ontario. Historically the culture of small towns and communities were reflected within the members and culture of their volunteer fire departments. In the past, volunteer departments were comprised of business owners and residents who were able to leave their place of employment or home to respond to the fire station alarm for the call to duty. Weekday daytime staffing with a volunteer model is a challenge using a volunteer model in today's employment conditions, where the majority of residents leave their home community to commute to work in major employment centres. Changes in employment conditions and individual priorities for work/life balance have negatively impacted recruitment and retention of volunteer firefighters across Ontario. The Municipality of Clarington is no exception to this. Sustaining a complement of volunteer firefighters that are available during normal business hours to provide the level of initial response and depth of response recommended is a significant challenge the department is currently facing. Based on our analysis we are recommending that CEFS consider increasing the station complement of volunteers from the current 25 to 30. This will be a net increase of 25 volunteers across the entire department. Ideally, these staffing levels would be increased as soon as possible within the short-term horizon of the plan. Some of the volunteer stations (e.g., Station 5 in Enniskillen) are currently at capacity with regards to training space and equipment storage space. Therefore housing an additional five volunteers at these restricted stations would be a challenge. As discussed above it is recommended that CEFS conduct a facility review, including a space -needs assessment for supporting additional volunteers at all stations. Options for temporary storage solutions (e.g. portables or trailers) could be considered as an interim measure to solve the immediate needs. 6.11.2 Staffing of Station 2, Newcastle As noted above, CEFS currently employs 52 full-time suppression staff (firefighters), currently organized into four platoons of 13 firefighters. Currently, one platoon of 13 is on -duty at all times and full-time suppression staff operates from Stations 1 and 4 only, supported by volunteer firefighter complements at all five CEFS stations. The previous Master Fire Plan (updated in 2008) recommended hiring full-time resources to maintain five on -duty firefighters at the relocated Station 2 in Newcastle. This report has revisited this recommendation under exiting industry guidelines and best practices and provides assessment of a number of options for staffing Station 2 when it opens at the new location in 2014. Industry practices reflect two important concepts when considering the hiring and assignment of full-time firefighters. The first concept is related to providing 24 hour day coverage that requires the utilization of a four platoon system to sustain. This reflects that a municipality should hire and assign full-time firefighters based on a factor of four. To sustain an equal amount of full-time firefighters on each of the four platoons it requires that full-time firefighter staffing decisions be made in denominations of four. 6.0 Fire Suppression Page - 98 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 The second concept is related to sustaining a complement of four full-time firefighters on an apparatus. Industry practices also reflect that to sustain a complement of four full-time firefighters on an apparatus it requires a staffing ratio of "4 x 1.25" which equals five firefighters. When multiplied by the four platoons this equals 20 firefighters per apparatus on staff within the department. Utilizing the ratio of 1.25 accounts for the absence of full-time firefighters when they are absent for vacation, illness, and other absences from work. Option 1: Maintain Station 2 as a Volunteer Station This option represents maintaining `status quo' at Station 2, by continuing to operate the station with a volunteer complement of suppression staff. The volunteer complement at Station 2 provides quality service to the community of Newcastle. Sustaining this successful volunteer model, however, will be a challenge. The annual call volume at Station 2 over the past five years was calculated to be 369 calls, with the 2012 call volume of 395 calls. This represents more than a call a day. At this workload level it is typical to see a transition to a composite model with full-time crews supporting the call demands, relieving some of the types of calls from the volunteer complement. Growth and development is currently planned for Newcastle and the area immediately surrounding it. It is expected that this will further perpetuate the call volume and workload at Station 2. This option is not recommended as a strategy for staffing the new Station 2 when it opens in 2014. Option 2: Implement On Duty Day Crew (Weekday business hour coverage) With the 1.25 ratio and four platoon staffing model discussed above, the existing staffing of 52 should equate to 10 on -duty suppression personnel available 24 hours per day, seven days per week. If eight of these positions are assigned to the existing full-time stations (four at each Station 1 and Station 4), there would be two full-time positions which could be assigned to Station 2. Having a crew of two firefighters operating from Station 2 24 hours per day, seven days a week would result in either (a) a first response of two firefighters on an apparatus, or (b) would result in a delay as the two on -duty awaited the arrival of two volunteer firefighters to staff the apparatus with a crew of four. Neither of these scenarios are desirable, as (a) four firefighter crews as a first response, not two, is consistent with best practices and (b) having the on -duty crews wait for volunteer crews to arrive will extend the turnout time of the first arriving vehicle and will degrade the benefit that full-time crews bring of improving total response times compared to the existing volunteer model. As well, Clarington does not currently operate with full-time and volunteer suppression staff on the same apparatus. The operating approach recommended within this option would provide full-time staff at Station 2 during weekday, Monday to Friday business hours (e.g. 8:00 AM to 6:00 PM), to provide coverage during the most challenging times for volunteers to respond. This could be accomplished with five of the 52 existing suppression staff working four 10 hour shifts per week. The volunteer crews would continue to provide a valuable service as the first response during weekday evenings and 24 hours a day on weekends as well. The volunteer crews would also provide a depth of response for all required calls (e.g. all structure fire calls, fire related calls, rescue calls, etc.). This option could be implemented in the immediate horizon of the plan without adding suppression staff. Therefore it is recommended for consideration in the immediate term. As Newcastle continues to experience growth and the call volume at Station 2 increases, this model will likely reach capacity. 6.0 Fire Suppression Page - 99 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Option 3: Implement Full-time Pump Crew (24 hours per day, 7 days per week coverage) With the 1.25 ratio and four platoon staffing model discussed above, it is expected that in order to staff one apparatus (pump) 24 hours per day, seven days a week, at each of Stations 1, 2 and 5, a total full-time staff of 60 suppression personnel (including Captains) would be required. This is considered to be Option 3. Currently, CEFS has 52 suppression personnel on staff. Therefore, in order to add a full-time pump crew of four on -duty firefighters to Station 2, the Municipality would need to hire an additional eight firefighters. This option would achieve a first response of four firefighters within four minutes of travel time for the majority of the urban area of Newcastle. The improved turnout time of on -duty crews compared to volunteer crews would improve the overall response time for the urban area of the community. The volunteer crews would continue to provide a valuable service as the depth of response, as required (e.g. all structure fire calls, fire related calls, rescue calls, etc.). Based on an average cost of wages and benefits representing $120,000 for a full-time firefighter this option represents a total increase of $960,000 to the annual operating budget. Option 4: Phased Implementation of Option 3 (Combination of Options 2 & 3) Option 4 represents a phased implementation of Option 3, incorporating elements of Option 2. In Option 4 it is recommended that Option 2 be implemented at the time of opening the new Station 2 (immediate term). Following this, an incremental process should be budgeted for and supported by Council to add suppression staff over the short term period to accomplish Option 3 by the midterm of the plan (2018 at the latest). This option has the same total cost implication as Option 3, however, it will be managed over a longer implementation horizon. It is recommended in this plan to initiate the incremental hiring in 2014 with the addition of four full-time suppression staff and the hiring of an additional four in 2016. This option is recommended as it provides the best balance of emergency response to a growing and urbanizing area, support for the sustaining the existing volunteer complement and financially manageable implementation method. 6.11.3 Span of Control and Succession Planning The fire service relies on a formal rank structure styled after a paramilitary organization in order to maintain control and command of an emergency incident. A core component of the rank structure is the span of control, and specifically the number of direct reports (personnel) a specific officer should be considered able to supervise. This Fire Master Plan recommends consideration for span of control within both the full-time and volunteer suppression complements. 6.11.3.1 Full-time On -duty Supervisors The introduction of an on -duty Senior Captain position (exact title to be determined by the Municipality of Clarington) is consistent with establishing a command structure that is consistent with the span of control and reporting structure within the overall department. The primary role and responsibility of the proposed Senior Captain position is the oversight of the on -duty full-time suppression staff (Captains and firefighters) as well as supervision of all suppression personnel responding to incidents during the Senior Captain's shift. The Senior Captain will report to the Deputy Chief responsible for Suppression Operations or the on-call member of the CEFS Management Team. Implementing this position will provide 24 hour a day, seven day a week supervisory support for the management of the department and will offload some of the present day roles and responsibilities of the Deputy Chief overseeing suppression operations (e.g. follow-up / accountability, move trucks / apparatus as required, records management, etc.). This role will be especially valuable outside of regular business hours (e.g. evenings and weekends) when the Deputy Chiefs and Fire Chiefs are operating on an on-call basis only. 6.0 Fire Suppression Page -100 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 In addition to improving the span of control and providing on -duty support to the management team, this new position provides an additional level of responsibility and is an additional opportunity within the CEFS to gain leadership and supervisory experience as part of the overall department succession plan. 6.11.3.2 Volunteer Complement Supervisors In order to address span of control for supervision within the increased complement as well as to improve overall succession planning within the volunteer suppression group, CEFS should consider adding five volunteer Acting Captain positions to each of the five fire station complements. This will also provide supervisory training to an additional five staff per station for staffing volunteer apparatus. This is also an improvement within the succession plan for the volunteer suppression personnel. 6.12 Summary and Recommendations Fire suppression is the third "line of defence" within an overall community fire safety plan. Effective and efficient fire suppression capability is a critical component in protecting life safety and reducing property loss as a result of fire. The Municipality of Clarington and the CEFS have established an effective and efficient Fire Suppression Division. 6.12.1 Recommendations As a result of our review of the CEFS Fire Suppression Division it is recommended: 1. That CEFS continue to identify performance targets for the Suppression Division including targets for turnout times, first response and depth of response. 2. That CEFS continue to target, track (including the on -scene arrival times) and monitor the first response deployment of four firefighters, and a depth of response deployment of 14 firefighters to moderate risk occupancy, and 24 firefighters to high risk occupancy. 3. That CEFS identify and implement specific strategies targeted to reduce turnout time for both the volunteer and full-time firefighters. 4. That Council prioritize the incremental implementation of full-time staffing at Station 2 in Newcastle by hiring four full-time suppression staff in 2014 and four full-time suppression staff in 2016 in order to achieve the target of 24 hour full-time coverage by the midterm horizon of this IMP. 5. That CEFS consider incrementally increasing the station complement of volunteers at each station from the current 25 to 30 within the short-term (one to three years) horizon of this Fire Master Plan. 6. That CEFS conduct a facility review, including a space -needs assessment for supporting additional volunteers at all stations. Options for temporary solutions could be considered as an interim measure to solve the immediate needs. That CEFS consider the introduction of a Duty Captain position to oversee the operational requirements of the CEFS on a 24 hour basis. This position would be a reclassification of four present Captains. That CEFS consider adding five new volunteer Acting Captain positions to each of the five fire station volunteer complements. 6.0 Fire Suppression Page -101 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 7.0 TRAINING DIVISION The Training Division operates out of Station 1 in Bowmanville. The division is led by a Deputy Chief, who manages a full-time Senior Training Officer and a Training Officer. The Deputy Chief is in charge of the division and evaluates the effectiveness of the training plan, ensuring compliance with occupational health and safety and related standards. The training division is responsible for ensuring that all personnel receive the training necessary to meet the legislative requirements of the Ontario Fire Prevention and Protection Act (FPPA) and the Occupational Health and Safety Act of Ontario (OHSA). The Senior Training Officer oversees and facilitates the development and implementation of each training plan and the overall program plan. The Senior Training Officer directs the Training Officer, Company Officer while in a training capacity, Trainer/Facilitators (as prescribed by the Ontario Fire College) and Station Trainers as divisional personnel. The Training Officer assists in the development of training programs and tactically delivers specialized and maintenance training. Training is designed and delivered in compliance with departmental policies and operational guidelines. 7.1 Annual Training Plan Developing and delivering a comprehensive training program for the Fire Suppression Division is the primary role of the Senior Training Officer, with support from the Training Officer. The content of the training program is dictated by the department's Establishing and Regulating By-law and is designed in accordance with the Company Officer Curriculum and Fire Fighter Curriculum, as set out by the Office of the Fire Marshal (OFM). The National Fire Protection Association (NFPA) standards are referenced as a recognized authority for the training, professional development and accreditation of Fire Fighter and Company Officer professional qualifications. Training Programs also meet the legislative requirements of the Ontario Fire Protection and Prevention Act (FPPA). As described in the Establishing and Regulating By -Law, CEFS responds to and trains on: • Fires operating within both offensive or defensive strategies • Search and rescue • Forcible entry • Ventilation • Exposures protections • Salvage and overhaul • Medical calls • Operations Level to Water and Ice Rescue incidents (full time and Station 1 volunteer personnel only) • Hazardous Materials Response (full time personnel only) • Automobile and Special Extrications incidents. • Awareness Level only to confined space, trench and heavy urban search and rescue incidents • Operational strategy to basic rope rescue incidents with a steep incline rescue as the maximum of their competency 7.0 Training Division �I Page -102 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 In partnership with the Ontario Association of Fire Chiefs, the Office of the Fire Marshal - Ontario has developed training standards for firefighters and Company Officers. The Ontario Firefighters Standard and Company Officer Standard contain extensive curriculum including the theoretical and practical components of the primary functions and roles and responsibilities of these positions. To date these standards have formed the basis of the annual training program for firefighters and officers within the Clarington Emergency and Fire Services. Recently the Office of the Fire Marshal — Ontario announced that the province will be transitioning to the utilization of the relevant NFPA standards for training. At present a process is being developed to determine how this transition will be implemented. As this process is determined the CEFS will need to revise its training program to align with the NFPA standards adopted by the OFM. Addressing an employer's responsibilities as defined by the Occupational Health and Safety Act and specifically the Section 21 Guidance Notes for Firefighters is another mandatory component of a comprehensive annual training program. In our view, in addition to responding to the relevant standards, curriculum and health and safety requirements, a comprehensive annual training program should include the following core functions: • Identification of training needs in relation to services provided; • Coordination / scheduling of theoretical and practical training; • Monitoring and evaluation in relation to outcomes achieved; • Ongoing evaluation in relation to industry best practices and legislative requirements; • Oversight of program objectives and records management; and • Ongoing assessment of program delivery for efficiency and effectiveness. Developing and sustaining an annual training program that includes all of the core functions and addresses the health and safety responsibilities of the municipality is consistent with the strategic priority that fire services across Ontario are initiating. We recommend that within the transition to utilizing the NFPA training standards adopted by the OFM that the CEFS develop a Comprehensive Annual Training Program. Volunteer suppression staff train on suppression functions once monthly in sessions varying from four hours to eight hours in length. Full time staff undergoes training two hours daily while on duty, on average, including several eight hour sessions throughout the year. Limitations identified by the Training Division include budget constraints and out -of service training logistics due to overtime costs. Full time staff are typically training (and interrupted) in-service. 7.0 Training Division Page -103 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 7. 1.1 Live Fire Training The purpose of live fire training is to provide realistic fire simulations under safe and controlled training conditions. As most municipalities experience relatively low volumes of fire calls it is important that the Training Division provides access for suppression staff to simulate safe and effective fire suppression operations in an appropriate training facility. Live fire training facilities can provide simulated heat, humidity, restricted vision and smoke conditions. CEFS uses a small live fire training prop at the Oshawa Municipal Airport and sends suppression personnel to Wesleyville Fire Training Academy to accomplish live fire and incident command training. Regular access to live fire training on a scheduled basis should be included within the CEFS training program. It is recommended that the comprehensive annual training program include scheduled participation by all suppression personnel in live fire training exercises on an annual basis, as a minimum. Consideration for facilities providing live fire training should be investigated and pursued, including potential partnerships with neighbouring municipalities or industries. 7.2 Technical Training Program Technical rescues require a higher standard of training and competency than traditional firefighter training. Although the frequency of incidents requiring this type of training is significantly lower than that of traditional firefighting, the "technical' and health and safety requirements are typically significantly higher. As listed in Section 8.1, the CEFS provides training on the following technical rescues: • Operations Level to Water and Ice Rescue incidents (full time and Station 1 volunteer personnel only) • Hazardous Materials Response (full time personnel only) • Awareness Level Trench Rescue, Confined Space Rescue and Heavy Urban Search and Rescue incidents • Rope / High -angle Rescue, with steep angle rescue as the maximum competency. 7.2.1 Prevention and Education Training The Training Division in Clarington trains Fire Prevention staff only on SCBA and scene safety related items used during their investigative and cause determination duties. Fire Prevention staff are kept current in CPR and First Aid through the Base Hospital provider. The Training Division has no expertise in Fire Prevention Division related duties and therefore staff in that division are certified coming into the job and attend educational and informational sessions regularly, off site, to maintain their competencies. Fire Prevention Staff also maintain membership in professional organizations. 7.3 Training Facilities Aside from municipally owned fire station grounds and public lands, training occurs at the Wesleyville Fire Training Academy (live fire and incident command training), as well as a live fire training prop located at the Oshawa Municipal Airport (owned in conjunction with area departments and Durham College). Externally, training sessions in other municipalities and the Ontario Fire College are provided as the training budget allows. The CEFS sub -contracts Emergency Medical Responder training (two eight hour sessions per year) for all 180 staff to Lakeridge Health — Base Hospital. According to the CEFS, this emergency medical responder training alone accounts for over 50% of the annual budget expenditure. 7.0 Training Division Page -104 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 The CEFS has identified the following issues regarding training facilities: • Training facilities are limited to outdoor spaces and interior station amenities, which are not specifically designed for hands-on or practical training • A training/space tower would be beneficial to set up Firefighter Survival training concourses, search and rescue mazes and obstacle course prop evolutions • A dedicated secure pad area for auto extrication training would be beneficial • CEFS would have difficult bringing all staff to a central training center because of the need to provide coverage in areas from which staff are drawn, as this relates to coverage or backfilling for emergency response • More computer workstations are required to allow sufficient access to online training. Training facility needs should be a focus of the facility review recommended within this IMP. This includes consideration for increased classroom sizes for increased volunteer complements, as well as space for in-service training for the full time stations. In addition, CEFS should consider and pursue opportunities for partnerships for training facilities, especially live fire training facilities, with neighbouring municipalities. 7.3.1 Training Technology Opportunities The use of technology can be an excellent tool for training divisions, especially for training a composite department with both full time and volunteer training needs. Web -based video conferencing could be used to deliver some training presentations to all stations simultaneously, delivered by CEFS training staff efficiently and effectively. This potential should be investigated and implemented, where possible, to enhance the current availability of programs and improve the efficiency of delivery information and training to fire services staff. A recent trend for training volunteer firefighters is through online training programs and associated online records management tracking. These tools can be an innovative and cost effective method for delivering firefighter training. The learning materials are all available online and can be accessed through the internet at any time of day. Some of the specialty programs allow each member of the department to log on to their own account and complete courses created by their own department's training staff. These courses can be self -delivered or supervised and delivered by Trainer Facilitators. Staff can access course materials anytime they want outside of the regular training schedule. These programs allow the department to build and customize its own training course content. The tool also allows fire departments to share courses with other fire departments. This tool is currently available for all firefighter and company officer subjects. Initiatives such as this that enhance the efficiency of training delivery and access and broaden the topic material available to all staff should be investigated, pursued and implemented by the CEFS. 7.0 Training Division Page -105 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 7.4 Company Officer Development The fire service in Ontario has recognized Company Officers development as a priority, as they act as supervisors as defined by the OHSA, as Incident Commanders on fire scenes, and as managers within a municipal environment. The OFM Company Officer Standard and learning curriculum provides a core level of information to prepare Company Officers through self -study for Company Officer Examinations, held every two years. According to the CEFS, it can take up to eight or ten years to put a staff member through the Company Officer Program and Certification training. The training takes place at the Ontario Fire College in Gravenhurst in daily/weekly sessions, with some components delivered locally/regionally through OFC Associate Instructors. The full-time complement of CEFS includes the Senior Training Officer, Training Officer, Fire Prevention Officers, Suppression Captains and Acting Officers in each division. 7.5 Division Resources The current division staffing of two: Senior Training Officer and Training Officer are at capacity with the demands of the workload for CEFS department -wide training. The recent announcement by the OFM to transition to the use of NFPA standards will further impact the workload requirements within the Training Division. As well, there are recommendations contained within this Fire Master Plan to add both full time and volunteer staff. With the additional volunteers recommended to be added to the department (25 overall), there will be a resulting increase in training needs. As well, with the recommended option to implement a full-time crew at Station 2 in Newcastle, additional training needs will be added to CEFS as a whole. In order to further enhance the Training Division and respond to the challenges listed above an additional Training Officer position is recommended within the short to mid-term horizon of this IMP. This will also improve the consistency and quality of training throughout the department. A second Training Officer position would also add much needed capacity to the division in order to develop and expand current training and support the on-going delivery of training to the CEFS as it expands to meet the needs of the growing community. 7.6 Summary and Recommendations Training within the Ontario Fire Service will be changing over the coming years. Recently the Office of the Fire Marshal — Ontario announced that the province will be transitioning to the utilization of the relevant NFPA standards for training. At present a process is being developed to determine how this transition will be implemented. As this process is determined the CEFS will need to revise its training program to align with the NFPA standards adopted by the OFM. There are areas of training which could be provided more efficiently with enhanced use of technology, such as on-line training sessions or video conferencing for delivery training presentations to all stations simultaneously. These potentials should be investigated and implemented, where possible, to enhance the current availability of programs and improve the efficiency of delivery information and training to fire services staff. 7.0 Training Division Page -106 DILLON CONSULA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 As a result of our review of the CEFS Training Division we recommend: That current CEFS training activities be enhanced to provide a Comprehensive Annual Training Program for all CEFS staff as part of the transition to utilizing the NFPA training standards recently adopted by the Ontario Fire Service. 2. That the space needs assessment (recommended within this FMP) include focused consideration of the training space needs requirements including classroom space, and in-service training space. 3. That CEFS investigate opportunities for partnerships with other agencies and neighbouring municipalities to provide access to live fire training. 4. That an additional Training Officer position be considered within the mid-term horizon of this FMP in recognition of the increased fire suppression resources, including full-time and volunteer firefighters, identified within this FMP. 5. That the proposed CEFS Comprehensive Annual Training Program includes scheduled participation by all fire suppression personnel in live fire training exercises on an annual basis, as a minimum. 6. That the proposed Comprehensive Annual Training Program include, where possible, the use of web -based video conferencing and online training programs to enhance the current availability of programs and improve the efficiency of delivering information and training to all fire suppression staff. 7.0 Training Division Page -107 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 8.0 APPARATUS, EQUIPMENT & MAINTENANCE The Municipality of Clarington Operations Department provides fleet maintenance for the CEFS. Equipment repairs and small repairs on vehicles are handled by an internal Mechanical and Technical Support person. The division is overseen by a Deputy Chief, responsible for apparatus purchasing, apparatus repairs, equipment purchases and overall maintenance. Apparatus repairs are reported by staff to a "Fire Dept. Maintenance Communications" email group, consisting of eight people: the Fire Chief, two Deputy Chiefs, Fleet Supervisor (external to CEFS), three mechanics (external to CEFS) and the Mechanical and Technical Support person. 8.1 Division Responsibilities The responsibilities of the Maintenance Support division are provided in policy No. 2-34-P, "Operational Structure," as follows: • Perform preliminary diagnosis; • Diagnoses and repairs — equipment and appliances; • Diagnoses and repairs SCBA and other personal safety equipment; • Maintain Department consumable supplies; and • Research and analysis. There CEFS has grouped various Policies and Operating Guidelines under the heading "Apparatus/Equipment". The Establishing and Regulating By -Law does not include a description of the responsibilities of the Mechanical and Technical Support person. This Fire Master Plan recommends that the Establishing and Regulating By -Law be amended to include the responsibilities of the Mechanical and Technical Support person. 8.2 Current Apparatus and Equipment Overall, the apparatus and equipment within the CEFS are in good condition. The fleet is relatively young, and is being replaced on a regular cycle. Heavy apparatus are replaced at 10 years for pumpers, and between 15 to 18 years for aerials and tankers, depending on the condition of the apparatus. A less than ten year replacement cycle is applied for light vehicles. The fleet is also well dispersed amongst the five fire stations to provide efficient suppression services throughout the Municipality. Each station is equipped with at least one pumper and a tanker, with a pumper (full-time staffed) and rescue units at Stations 1 and 4. Aerials are currently stationed at Station 1 and 2. The existing fleet, model years and planned replacement years are summarized in Table 16 (heavy apparatus) and Table 17 (light / medium vehicles) below. 8.0 Apparatus & Equipment /Fleet Review /Maintenance Support Page -108 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 16: Apparatus and Model Year (Trucks) Vehicle Model Year Planned Replacement Year (CEFS 2013 Replacement Plan) 15 -year Replacement Cycle Aerial l l - Pierce 2007 - 2022 Aerial 12 — E -One 2013 - 2028 Pumper 10 —Spartan 2004 2014 2019 Pumper 11 - Pierce 2007 2022 2022 Pumper 122 - Freightliner 2003 2015 2018 Pumper 12 - Spartan 2012 - 2027 Pumper 13 - Spartan 2008 2019 2023 Pumper 14 - Spartan 2004 2014 2019 Pumper 15 - Freightliner 2003 2018 2018 Pumper 144 - Freightliner 2005 2017 2020 Rescue 11 - Ford 2006 - 2021 Rescue 14 - GMC 1990 2016 (heavy rescue) 2005 Tanker 11 - GMC 1999 2016 2014 Tanker 12 - Freightliner 2004 2019 2019 Tanker 13 — International 2007 2021 2022 Tanker 14 — GMC 1999 2017 2014 Tanker 15 - Freightliner 2010 2024 2025 8.0 Apparatus & Equipment /Fleet Review /Maintenance Support Page -109 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 17: Apparatus and Model Year (Light Vehicles) Vehicle Model Year Replacement Year Car 11 — Chevrolet 2012 2018 Impala Car 12 - Chevrolet 2007 2013 Impala - Car 13 - Chevrolet Impala 2010 2016 Car 14 (Training) — Ford COF 2012 2019 Car 16 (Prevention) — Ford SRW Pickup 2012 2019 Car 17 — Chevrolet 2009 2015 HHR Car 18 — Chevrolet 2009 2015 HHR Car 19 — Chevrolet 2009 2015 HHR Car 110 (Maintenance) — 2009 2015 Chevrolet Silverado Utility 11— Chevrolet 2005 2016 Silverado Utility 13 — Chevrolet 2011 2018 Silverado Zodiac 11— Zodiac 2007 2018 NKII Boat Flashover Unit 2001 2020 Safety House 2003 2019 Generator Trailer 1999 2019 ATV 13 - Polaris 2013 2018 ATV Trailer 2013 2018 8.0 Apparatus & Equipment /Fleet Review /Maintenance Support Page -110 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 8.3 Reserve Fleet Considerations The CEFS does not currently have access to any reserve firefighting apparatus. All firefighting apparatus within the current fleet are assigned to provide emergency response either staffed by full-time or volunteer firefighters. For regular maintenance and in the event of a breakdown apparatus are removed from service resulting in a decrease in the number of apparatus available for emergency response. Based on the current size of the CEFS staffing and deployment of emergency response apparatus a reserve fleet of at least two pumpers should be considered. A common strategy to implement and sustain a reserve fleet is through life cycle planning of the apparatus replacement. Our review of apparatus replacement and major equipment replacement plans for municipalities with similar types of use and wear indicates a 20 year overall life cycle for apparatus such as aerials and tankers. This includes 15 years of service as front-line apparatus and a further five years of service in a reserve capacity. Front-line pumper apparatus may be considered for replacement after a 10 year cycle, with an additional five to eight years as a reserve vehicle, depending on the evaluated condition of the vehicle. This IMP is supportive of CEFS continuing the present fleet replacement cycle of 10 years for pumpers, and 15 to 18 years for tankers and aerials. Evaluations of the apparatus at time of replacement will determine the value and life expectancy for operation as a reserve apparatus. Our review identified that Pumper 10 currently has over 232,000 kilometers, and Pumper 14 has over 211,000 kilometers travelled. In our experience these are very high kilometrage numbers for emergency response apparatus in Ontario. Our analyses indicates that these high numbers are as a result of longer travel distances within Clarington, for example when apparatus respond onto the 401. Both of these apparatus are schedule for replacement in 2014 which should be considered a priority for the CEFS given the high mileage and increasing maintenance costs of these apparatus. Replacing these apparatus in 2014 would provide an opportunity to develop a reserve fleet by extending their life cycles for another five years or until the next scheduled replacement of another pumper. 8.4 Maintenance Facilities As described above, the Operations Department of the municipality provides fleet maintenance for the CEFS. The CEFS Mechanical and Technical Support person operates from Station 1. CEFS has received very good service from the Municipal Fleet Maintenance Department. The division has noted that while vehicles receive excellent service, much of the service is the result of an immediate need. There is an opportunity to increase preventative maintenance, which has been difficult to achieve. 8.5 Fleet Replacement Plan Life cycle planning is a core component of the fleet standardization and maintenance strategy. Our review of apparatus replacement and major equipment replacement plans for municipalities with similar types of use and wear indicates a 20 year overall life cycle for major apparatus such as pumpers and tankers. This typically includes 10 to 15 years of service as front-line apparatus (e.g. 10 for pumpers, 15 for aerials and tankers) and a further five years of service in a reserve capacity. The capital forecasting and planning needs to support and reflect the fleet replacement cycles and be supported by Council on a regular and on-going basis. Deferring replacement cycles can lead to high -mileage apparatus and resulting increased maintenance costs and increased out of service time. This IMP supports the current fleet replacement strategy applied by CEFS. 8.0 Apparatus & Equipment /Fleet Review /Maintenance Support Page -111 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Tables 16 and 17 shown above summarize the planned replacement dates associated with existing apparatus and light vehicles. The planned purchase and replacement of apparatus is included in the IMP Implementation Plan in Section 12.0. 8.5.1 Equipment Equipment testing and replacement procedures include: • Third parry testing of bunker gear by Fire Service Management • Goal to keep all PPE less than 10 years old • Respiratory Protection Plan in place for SCBA and cylinders 8.5.2 Future Fleet Considerations This Fire Master Plan recommends that Fire Chief should review the apparatus and equipment needs in light of the recommendations in this report. As a complement of full-time suppression staff are added to Station 2, an addition pumper will be required at that station to support the full-time and volunteer suppression operations and response. Consideration should be given to developing a reserve fleet to provide a spare for apparatus on maintenance, repair and out of service within the CEFS fleet. As the complement of volunteers at each station is increased, the turnout of volunteers to calls should be tracked and monitored to ensure the appropriate number of seats is available within the fleet of each station to transport the volunteers to incident scenes. If and when CEFS stations are receiving a consistently higher number of volunteers responding to the station for calls than the number of seats available, the Municipality should consider options for adding a passenger transport vehicle (i.e. passenger van) to the fleet of that station. 8.6 Summary and Recommendations Overall, the apparatus and equipment are in good condition. The fleet is relatively young, and is being replaced through a planned replacement schedule. The fleet is also well dispersed amongst the five fire stations to provide efficient suppression services throughout the Municipality. As a result of our review of the Apparatus, Equipment and Maintenance we recommend: 1. That CEFS develops strategies to maintain the apparatus and equipment replacement schedules and additional reserve apparatus needs in light of the recommendations in this IMP. 2. That the Establishing and Regulating By -Law be amended to include the responsibilities of the Mechanical and Technical Support person. 3. When CEFS stations are receiving a consistently higher number of volunteers responding to the station for calls than the number of seats available, the Municipality should consider options for adding a passenger transport vehicle (i.e. passenger van) to the fleet of that station. 8.0 Apparatus & Equipment /Fleet Review /Maintenance Support Page -112 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 9.0 COMMUNICATION & TECHNOLOGY REVIEW 9.1 Dispatching Services Dispatching services transferred from CEFS to Oshawa Fire Services in January 2013. Prior to this move, emergency communications were centred upon a dispatch office adjoining the apparatus floor at Station 1. Oshawa also provides dispatch services for Whitby and alerting services for Scugog, Brock and Uxbridge. Oshawa Fire Services uses CriSys Xpert CAD system for dispatching and reporting. This is compatible with the CriSys system in use by CEFS for records management. The dispatch procedure prescribes initial responses to a variety of emergency conditions, as identified, ranging from a single career or volunteer company to multiple unit responses. Additional trucks in the form of pumpers, aerials or tankers provide second alarm responses. In all emergency responses, at least one of the two career staffed pumps (Pump 1 or Pump 4) is included in the emergency response assignment. 9.2 Staffing and Supervision As stated above, dispatching moved to Oshawa in January 2013. One of the CEFS Deputy Chiefs continues to oversee dispatch and communications, and was instrumental in arranging the present transfer of services and related agreements. The Oshawa Communications Division is staffed with a total complement of 16 full-time communicators. A senior communicator is assigned to each shift. Overall responsibility for the Communications Division is assigned to Oshawa Fire Services' Deputy Fire Chief of Operations. 9.3 Radio Systems The radio communication system currently being used is a Motorola 800 MHz private trunked radio system owned by the five southern Durham Region municipalities including Pickering, Ajax, Whitby, Oshawa and Clarington. CEFS has an established policy for use of the radio system. The radio system allows for coverage throughout Durham Region, with communication towers in Clarington, Mitchell's Corners, Whitby, Pickering and Oshawa City Hall. It provides 13 Fire Services talk group channels available for use as follows: • 4 Oshawa channels • 4 Pickering channels • 4 Whitby channels • 4 Ajax channels • 4 Regional channels • 4 Clarington channels • 1 Fire -Wide channels • Other various channels for City of Oshawa Departments No issues were noted with the Motorola radio functionality however, as with other similar Motorola trunked radio systems; it has reached the end of its technology life cycle and is scheduled to be replaced in 2014 with a newer system. 9.0 Communication & Technology Review Page -113 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 9.3.1 Next Generation Common Communications Platform Project (NextGen) Clarington Emergency & Fire Services is a participating member in the Next Generation Common Communications Platform (NextGen) Regional Communications Interoperability Project. The project, conceived in early 2012, and involves collaboration with Fire Services within Durham Region, Durham Regional Police Services (DRPS), Ontario Power Generation (OPG) and the Region of Durham. The project aims is to identify, acquire and deploy a region -wide common and seamless voice and data communications platform. Current project horizon aims to have the platform in place by mid -2014. This will allow emergency responders and public service organizations in the Region of Durham to communicate in real-time without boundaries such as disciplines or jurisdictions. 9.4 Opticom System The Municipality of Clarington and the Clarington Fire & Emergency Services has implemented an Opticom System for emergency vehicle pre-emption at intersections controlled with traffic signals. CEFS apparatus have mounted Opticom transmitters and traffic signals along specific major routes have Opticom receivers. When Opticom is activated, it provides priority to the emergency vehicle by indicating a green light for the fire apparatus to travel through the intersection. CEFS has a policy to dictate the use of the Opticom system. 9.5 Department Technology It is recommended that CEFS Management Team investigate and pursue opportunities to apply technology to improve internal communications, department training, public education, records management and any other applicable areas. This may include online training, video conferencing, social media, electronic message boards or volunteer responder programs. Consideration could be given to applying "Government 2.0" technologies to create efficiencies and improve overall technology and communication within CEFS and the Municipality of Clarington. 9.6 Department Communication Internal communications can be a challenge in composite fire departments, as well as those with fire stations that are geographically separated or contained within former communities amalgamated into the larger municipality such as within Clarington. Internal communications appear to be working well at the station level, but would benefit from more interaction and communication at the overall departmental level. Department staff have a desire to be informed, be involved, and ultimately help towards achieving the goals and objectives of the department. In our experience there are various strategies that could be considered to enhance communications within the department. This could include use of technology, such as online bulletin boards, station -based electronic message boards or regular email bulletins to all staff. Opportunities for multi -station or department -wide training sessions or information sessions should be encouraged. Opportunities for the management team, full-time staff and volunteer staff to interact should be fostered and supported. 9.7 Summary and Recommendations As a result of the review of communications and technology, it is recommended: 1. That CEFS investigate and pursue opportunities to apply technology to improve internal communications, department training, public education, records management and any other applicable areas. 2. That CEFS consider strategies to continuously improve internal communications throughout the CEFS as a whole department. 9.0 Communication & Technology Review Page -114 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 10.0 MUNICIPAL COMPARATORS The Clarington Emergency and Fire Services strives to maintain fiscal responsibility in providing effective and efficient municipal fire and emergency service delivery. Assessing the current costs of fire protection in comparison to those of other municipalities provides further depth of analysis in support of the continued commitment of Council and senior staff to providing the highest level of services and programs to the community in the most cost-effective and efficient manner. To conduct the analysis of municipal comparators, consideration was first given to developing a list of indicators that would reflect an accurate representation for comparison analysis. The indicators identified included the following: ✓ Population ✓ Number of Residential Dwellings ✓ Geographic Area of the Municipality ✓ Density Per Square Kilometer ✓ Simplified Risk Assessment The OFM "Summary of Key Facts and Fire Loss" was the initial data source used to research these indicators in order to identify the list of comparable communities utilized within this report. Additional information was also provided using; "Census Profiles" produced by Statistics Canada, and "Financial Information Return (FIR) and Municipal Performance Measurement Program (MPMP)" produced by The Ministry of Municipal Affairs and Housing. The strategies and recommendations contained within this FMP utilize a comprehensive Community Risk Profile as a primary factor in evaluating current and future service delivery levels and staff resources. This depth of analysis with regard to community risk is not readily available for peer departments across the province, and as such was not available for the comparable municipalities selected. As a result our general knowledge and understanding of the eight risk factors for each of the comparator municipalities was considered in selecting the municipalities identified. As such in developing the list of municipal comparators, identified in Table 18 below, priority was given to ensuring, where possible, that the municipal comparators chosen reflected a similar community risk profile. 10.0 Municipal Comparators Page -11 S DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report - February 2014 Table 18: Municipal Comparator Group Community Population 2011 Land Area kmz Population Density (persons/km Call Volume 2011 # of Dwelling Units (Total Private s Dwellings) g ) City of Quinte West 43,086 494 87 996 18,236 Town of Georgina 43,517 288 151 2,067 17,824 City of Belleville 49,454 247 200 1,510 22,153 City of Welland 50,631 81 625 2,357 22,701 Town of Halton Hills 59,008 276 214 723 20,548 Town of Caledon 59,460 668 89 2,092 19,649 City ofKawartha Lakes 73,214 3,083 24 2,802 37,161 City of Niagara Falls 82,997 210 395 4,931 35,199 Municipality of Clarington 84,548 611 138 3,488 30,797 City of Kingston 123,363 451 274 3,775 57,623 City of Greater Sudbury 160,274 3,227 50 4,138 72,420 Comparator Group Average 75,414 876 204 2,625 32,210 As shown above, the Municipality of Clarington's population (84,548) and number of dwellings (30,797) are just slightly higher and lower respectively than the comparator group average of 75,414 and 32,210. Clarington's land area of 611 km2 is approximately two-thirds the size of the group average of 876 km2 while the Municipality's call volume is significantly higher (approximately 32% higher) than the peer group average. Utilizing comparisons such as this are consistent with PFSG 02-03-01 "Economic Circumstances. " Under the section "Factors to be considered in assessing the local economic circumstances" the document identifies a wide range of factors including "per capita basis, assessment basis and per household" and a further factor that states these are to be considered with regard to the "relationship of all of the above with similar municipalities. " Table 19 provides a comparison of the resources, staffmg and financial statistics for the comparator group. The financial information presented represents the 2011 actual operating costs for fire protection services as provided by each of the comparator municipalities. 10.0 Municipal Comparators Page -116 DILLON CONSUI.AING Municipality of Clarington Fire Master Plan Final Report — February 2014 Table 19: Resources, Staffing and Financial Comparison 10.0 Municipal Comparators Page - 117 / DILLON CONSULTING Station Full Time Fire Services Fire Services Fire Services Municipal Community # of of Coverage Volunteers Suppression Operating Operating Operating Budget Operating Total Assessed Value (Square Firefighters Firefighters Budget 2011 Budget 2011 - 2011 - Per Dwelling Budget 2011 2011 km) Per Capita Unit City of Quinte 7 71 130 18 $3,345,783 $78 $183 $51,646,366 $3,063,022,226 West Town of Georgina 3 96 48 38 $5,852,564 $134 $328 $32,597,378 $4,889,653,221 City of Belleville 4 62 50 64 $10,433,138 $211 $471 $89,813,132 $4,111,677,222 City of Welland 5 16 62 54 $8,286,421 $164 $365 $58,558,031 $3,568,461,440 Town of Halton Hills 3 92 96 23 $4,938,534 $84 $240 $54,776,134 $8,473,241,293 Town ofCaledon 9 74 288 21 $6,699,888 $113 $341 $46,288,107 $11,099,545,545 City ofKawartha Lakes 21 147 380 27 $7,610,571 $104 $205 $147,885,355 $9,394,869,004 City of Niagara 6 35 104 129 $18,660,711 $225 $530 $85,525,279 $8,543,844,575 Falls Municipality of 5 122 125 52 $10,527,093 $125 $342 $52,934,427 $8,897,815,300 Clarington City of Kingston 10 45 175 142 $21,871,458 $177 $380 $324,035,382 $12,187,509,414 City of Greater 25 129 353 127 $21,066,301 $131 $291 $414,462,293 $11,871,894,900 Sudbury Comparator Group Average 9 81 165 63 $11,594,668 $147 $349 $130,687,552 $8,303,851,191 10.0 Municipal Comparators Page - 117 / DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 Clarington has five fire stations, which is roughly half the group average of nine and covers more area per station than the group average. Clarington Emergency and Fire Services has 24% fewer volunteer firefighters and 14% fewer full-time firefighters than the group averages. This indicates that staff levels may be at the low end of the optimal range for a composite fire department of its size. The recommended increase in the complement of volunteer firefighters from 125 to 150 would bring CEFS closer to the group average of 165. As well the phased implementation recommended to hire full-time firefighters to staff Station 2 in Newcastle 24 hours per day, seven days per week would increase the department full- time suppression resources from 52 to 60, closer to the comparator group average of 63 listed above in Table 26. Compared to the peer group averages for the 2011 data presented, CEFS has a 9% lower operating budget, 15% lower per capita operating budget and a 2% lower per dwelling unit operating budget. Overall, the Municipality's operating budget is 59% lower than the peer comparator average. The Municipality's 2011 Total Assessed Value is 7% higher than the comparator average. 10.0 Municipal Comparators Page -118 DILLON CONSUTA ING Municipality of Clarington Fire Master Plan Final Report — February 2014 11.0 STUDY CONSULTATION A project initiation meeting was held March 20th, 2013. As the study progressed, various forms of consultation activities were employed to engage the public and gather feedback from stakeholders and members of the community. Effective communication and consultation with stakeholders and the community is essential to ensure that those responsible for implementing this Fire Master Plan and those with a vested interest understand the basis on which certain decisions are made and why particular actions are required. Engaging stakeholders and the community helps to ensure that multiple perspectives can be brought to the fire master planning process. ll.l Project Team Information and feedback was collected from CEFS senior management via informal interviews held on May 16, 2013. This was an opportunity to gather background information and input on the strengths, opportunities, challenges and threats from the point of view of these key stakeholders. The senior management members included: • Fire Chief • Deputy Fire Chiefs Interviews were also conducted with staff from the following divisions: • Training • Fire Prevention & Public Education • Mechanical 1133 Additional Key Stakeholder Interviews and Consultation Other consultation included: Interview on May 16, 2013 with the Firefighters Association Executive President and two other Association members. • Tour of all stations on May 16, 2013 with Mechanical and Technical Support person • Two sessions of interviews on May 16, 2013 with volunteer firefighters 11.2 Project Meetings Throughout this study, the Dillon team facilitated project meetings to present project process, findings and recommendations to key staff and stakeholders. This included a project initiation meeting, presentation of preliminary findings, discussion of 2014 budget implications and review of the draft report. Following the final report, the Fire Master Plan will be presented to Council. 11.0 Study Consultation Page -119 DILLON CONSUI.A ING Municipality of Clarington Fire Master Plan Final Report — February 2014 11.3 Public and Stakeholder Consultation 11.3.1 Council Workshop Education and Training Session The engagement of Council in the Fire Master Plan process is paramount in ensuring overall municipal goals are met within the study recommendations and Council feel that they have ownership of the study. A workshop session was held with Council on April 30, 2013. Present at the session from the Municipality of Clarington were the Mayor, Chief Administrative Officer, Fire Chief and Councillors. The consultant team delivered a formal presentation to Council to introduce the purpose and background behind the fire master planning process and gather feedback regarding key issues, concerns or interests. The opportunity for questions and discussion followed the presentation. 11.3.2 Community Information Open House A Community Information Open House was held on June 11, 2013 at the Council Chambers, 40 Temperance Street in Bowmanville. The purpose of the public consultation session was to present the study to the broader public. Information provided included background material such as purpose and scope, and preliminary findings. The consultation included information display boards and a presentation providing an overview of the preliminary findings and opportunities. Copies of the display boards and presentation provided at the Open House are contained in Appendix K. 11.3.3 Online Public and Stakeholder Survey Online public notices introducing the study purpose and scope were posted on the Municipality's website and in the local newspaper. These notices advised of upcoming consultation opportunities, including the Community Information Open House and an online survey. Links to the online survey were connected to these bulletins. The online survey was conducted to collect and understand the public and community stakeholder experiences with the current services provided by the CEFS. Public and community stakeholder input is essential to the successful preparation of a Fire Master Plan. The results of the survey helped to guide suggestions and recommendations throughout the Fire Master Plan document. The online survey was designed and administered using the SurveyMonkey web -interface. The survey was advertised at the Community Information Open House on June 11, 2013, and through a link on the Municipality of Clarington website. The survey was available online from June 17th, 2013 through September 5t'', 2013. A summary of the results of the online survey is included in Appendix K. 11.4 Summary of Study Consultation Consultation was conducted with key stakeholders, Municipal staff, Council, Clarington Fire & Emergency Services staff (volunteer staff and Firefighters Association Executive) and members of the public throughout the course of the Fire Master Plan study. Interviews with key stakeholders and staff members were an essential component of the process. It provided insight into the strengths, weaknesses, opportunities and constraints facing the fire services and the issues to be considered within the FMP. Consultation included Project Meetings, Council Workshop Session, Community Information Open House and an Online Public and Stakeholder Survey. Study consultation allows for input into the IMP by study stakeholders and also provides an opportunity to inform stakeholder and the public about the IMP purpose, goals and recommendations. Support from Municipal staff and Council is essential to the success of the IMP, therefore, including these key stakeholders throughout the planning process is essential and highly beneficial. H.0 Study Consultation Page -120 DILLON CONSULTING Municipality of Clarington Fire Master Plan Final Report — February 2014 12.0 IMPLEMENTATION PLAN Recommendations resulting from analysis were derived to form an action plan for implementation, shown in Table 20. The costs resulting from this Fire Master Plan are shown below. These are estimates for planning purposes only and are based on current rates. The capital costs which are associated with growth, and therefore eligible for consideration of development charges funding, are highlighted in the table below. Table 20: Implementation Plan Plan Year Description Operating Cost Capital Cost Estimate Estimate Incremental addition of Fire Suppression staff for Station 2. Short Hire four firefighters at $120,000 $480,000 $20,000 (2014) salary and benefits. Bunker gear & uniforms at $5,000 per firefighter. Short (2014) Replace Pumper 10 $600,000 Short (2014) Replace Car 12 $40,000 Short Detailed Facilities Review and $45,000 (2015) Space Needs Assessment Hire 25 more volunteers (5 per Short station to increase complement $150 000 (2015) to 30 volunteers per station) at $6,000 base pay Short New bunker gear for additional 25 volunteer firefighters @ $87,500 (2015) $3,500 per firefighter Short Additional training hours for 25 new volunteer firefighters @ $62,500 (2015) $2,500 per firefighter Short Hire a dedicated Public Educator (2015) and purchase additional Fire $120,000 $35,000 Prevention vehicle. Short Implement Duty Captain Position (15% differential $70,000 (2015) increase for four personnel) 12.0 Implementation Plan Page -121 DILLON CONSUTAING Municipality of Clarington Fire Master Plan Final Report — February 2014 Plan Year Description Operating Cost Capital Cost Estimate Estimate Hire additional Training Officer Short to enhance internal training programs (for increased staff, $120,000 (2015) company officer leadership & new NFPA training standards). Short (2015) Live Fire Training partnership / $20,000 rental (annually for all staff) Short Additional administrative support (increase part time clerk $20,000 (2015) position to full time) Short (2015) Replace Pumper 122 $400,000 Short Replace Cars 17, 18, 19 & 110 (2015) (three cars at $25,000 each, one $130,000 truck at $55,000) Hire an additional Fire Short Prevention Inspector and $120,000 $35,000 (2016) purchase additional Fire Prevention vehicle. Incremental addition of Fire Suppression staff for Station 2. Short Hire four firefighters at $120,000 $480,000 $20,000 (2016) salary and benefits. Bunker gear & uniforms at $5,000 per firefighter. Short (2016) Online Training $15,000 Short Purchase crew vans for staff (2016) transport @ $45,000 each $90,000 (assume two) Short Heavy Rescue $650,000 (2016) (replace Rescue 14) Short (2016) Replace Utility 11 $75,000 Short (2016) Replace Tanker 11 $300 000 12.0 Implementation Plan Page -122 Municipality of Clarington Fire Master Plan Final Report — February 2014 Plan Year Description Operating Cost Capital Cost Estimate Estimate Facility improvements resulting Medium from Facility Review (2017) (Placeholder only —costs to be $500,00 determined through facility review study) Hire an additional Fire Short Prevention Inspector and $120 000 $35 000 (2017) purchase an additional Fire Prevention vehicle. Medium (2017) Replace Tanker 14 $300,000 Update of fire master plan to be completed in 2018. This should include an operational review to Medium to determine requirements for Long (2018 - additional suppression personnel TBD TBD 2021) to respond to growth, development, call volumes, volunteer response and industry best practices. Medium to Additional fire prevention Long (2018 - personnel as dictated by growth TBD TBD 2021) and development. Medium (2018) Replace Pumper 15 $600,000 Medium (2018) Replace Utility 13 $60,000 Medium Replace Car 11 $35,000 (2018) Medium (2018) Replace ATV & Trailer $30,000 Medium (2019) Replace Pumper 14 $600,000 Medium (2019) Replace Tanker 12 $300,000 12.0 Implementation Plan Page -123 DILL 3N CONSUL]ING Municipality of Clarington Fire Master Plan Final Report — February 2014 Plan Year Description Operating Cost Capital Cost Estimate Estimate Medium (2019) Replace Cars 14 & 16 $90,000 Medium (2019) Fire Safety House $100,000 Long Term (2020) Replace Pumper 144 $600,000 Long Term (2021) Replace Rescue 11 $150,000 Long Term (2022) Replace Pumper 11 $600,000 Long Term (2022) Replace Aerial 11 $1,100,000 Long Term (2022) Replace Tanker 13 $300,000 Long Term Purchase crew vans for staff (2021-2023) transport g $45,000 each $90,000 (assume two) Long Term (2023) Replace Pumper 13 $600,000 Long Term (2024-2025) Replace Tanker 15 p $300,000 Long Term (2027) Replace Pumper 12 $600,000 Long Term (2028) Replace Aerial 12 $1,100,000 Highlighting denotes associated capital costs are eligible for development charges funding. 12.0 Implementation Plan „ani Page -124 D I LLON CON SI; I _I -I NG APPENDIX A PFSG 00-00-01 "Framework for Setting Guidelines within a Provincial -Municipal Relationship" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Framework For Setting Guidelines Within A Provincial - Municipal Relationship Public Fire Safety Guidelines Subject Coding PFSG 00-00- 01 Section Date General January 1998 Framework For Setting Guidelines Within A Provincial -Municipal Page Relationship Purpose To assist municipalities in making informed choices for providing public fire protection through objective and innovative approaches. Guidelines will be developed for municipal councilors and senior officials as well as municipal fire departments. Background The Fire Protection and Prevention Act places new responsibilities on municipalities. The Office of the Fire Marshal has a mandate to assist municipalities to fulfill these responsibilities by providing information which will enable municipalities to make informed choices based on an objective analysis. Municipalities are compelled to establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention. The act also states that municipalities are responsible for arranging such other fire protection services as they determine may be necessary according to their own needs and circumstances. The relationship between the province and municipalities is based on the principle that municipalities are responsible for arranging fire protection services according to their own needs and circumstances. The primary roles of the province are to provide leadership and support to municipalities in the exercise of this responsibility, and to ensure public safety is not compromised. Guidelines, developed by the Office of the Fire Marshal in consultation with municipalities, the fire service and others, will be a key vehicle for fulfilling the provincial role to support municipalities. This consultation process will continue on an ongoing basis to ensure the guidelines change and evolve to reflect trends, changing circumstances and new technology. To be useful, the guidelines must remain current, and must have the support and acceptance of municipalities. The province will retain an interest in the development of guidelines and monitoring of their application. However, day-to-day management and delivery will be municipal responsibilities. Principles The key principles which will be used to develop the guidelines are as follows: • Municipal councils are directly accountable to their constituents and municipalities are also accountable to the province. • There will be opportunities for appropriate stakeholder involvement and consultation during the development stages. • Local needs and circumstances vary widely across the province. Therefore, the measures required to address these needs and conditions will also vary. • There are many ways in which individual needs and circumstances can be addressed. Therefore, municipalities require flexibility to employ different strategies to achieve similar objectives. • Local council, in consultation with the fire chief, will determine the extent to which their needs and circumstances will be addressed. Some may choose to address specific risks more comprehensively than others. Provided serious threats to public safety are addressed, this is a reasonable and legitimate exercise of municipal responsibility. Content and Implementation The guidelines will provide: • The key concepts of risk assessment and risk management • The factors that affect the level of fire protection in any community • The options municipalities may wish pursue in addressing risks • The information required to evaluate those options Municipalities will be able to use the guidelines in a variety of ways: • They can assign knowledgeable local officials to gather the necessary data and conduct appropriate cost/benefit analysis internally. • They can commission independent reviews of their fire protection activities and use the guidelines to monitor the consultant's activities and evaluate its conclusions. • Staff of the OFM will continue to be available to assist municipalities in the use of the guidelines. In addition, the OFM will be re -focusing its training and education services to provide municipal and fire department officials with the skills needed to utilize the guidelines effectively. Basis of Development The guidelines will be based on the Comprehensive Fire Protection Effectiveness Model. Fire protection in any community is determined by: 1. The risk of a fire occurring 2. The impact a fire may have on the community 3. Public attitude toward fire 4. The effectiveness of its fire prevention activities 5. The deployment of automatic fire detection systems 6. The deployment of automatic fire suppression systems 7. The effectiveness of its fire department's suppression activities 8. The time period between when the fire starts and when the fire department begins suppression activity The level of fire protection in a given community will reflect an appropriate balance of all of these factors. Changes in any one factor will affect the overall level of protection. For example, if the general public is complacent about the risk of fire, there will be a greater risk of a fire occurring in the community. A municipality may choose to address the risk by enhancing its fire suppression capability, by deploying more automatic detection and suppression systems, or a combination of any or all of the other factors affecting fire protection. It may also choose to address the issue head on - by raising awareness of public fire safety through effective public education. In short, there are many valid ways of addressing a problem of poor public attitude toward fire. The guidelines will not make value judgments on which course of action is the best, but they will help municipalities evaluate the efficiency and effectiveness of each option, and choose a course of action that suits its needs. The guidelines will also serve as a tool for improving the overall efficiency and effectiveness of a municipality's fire protection system. If a municipality is generally satisfied with the overall level of protection it provides, the model can help it improve efficiency by demonstrating that there are alternatives which may cost less, while achieving a similar level of protection. For example, it may find that through effective public education, it can reduce the number of fire code violations that persist throughout the community. This may lead to a reduction in the cost of inspecting properties and prosecuting offenders. The guidelines will also help municipalities to make adjustments to existing services to improve effectiveness and reduce costs. By thoroughly analyzing costs and benefits, municipalities can initiate new work assignments with confidence. For example, fire departments with full-time fire suppression staff can reduce the workload of the fire prevention division by conducting in-service fire safety inspections. Without objective tools for analyzing such innovations, those opposed can prevent change by appealing to public fears and misapprehensions. The guidelines will also facilitate fire department reorganization and restructuring on a much broader scale. Many smaller municipalities focus almost exclusively on fire suppression. This is often based on limited availability of volunteers' time to carry out prevention activities. The guidelines will help municipalities to see areas where resources can be shared and services can be provided over broader geographic areas. Inter -municipal co-operation will ensure that effective fire prevention and public education are both viable and affordable. Collectively, these measures can improve public fire safety while, at the same time, stabilizing or reducing costs. The guidelines are designed to provide municipalities with a new way of thinking about public fire protection. It will encourage them to consider all aspects of fire safety and not just fire stations, fire trucks and firefighters. Each guideline will assist municipalities to apply the Comprehensive Model by expanding further on each concept, outlining decision -points and indicating the information they will require to analyze their options. Municipalities will have the means to make objective choices about public fire protection, and implement significant changes with confidence. Overall Strategy The guidelines represent one component of the strategy the Ministry is proposing for public fire protection in Ontario. This strategy includes: • Clarifying municipal responsibility for local fire protection, while protecting the provincial interest in public fire safety. • Removing remaining legislative barriers which forestall the restructuring and reorganization of municipal fire services. • Facilitating a shift in focus which places priority on fire prevention and public education as opposed to fire suppression. • Providing municipalities with decision-making tools to help them provide services according to their own needs and circumstances. • Facilitating more active involvement of the private sector and other community groups in fire prevention and public education through the Fire Marshals Public Safety Council. This strategy recognizes that municipalities, with the aid of appropriate tools and support, are fully capable of ensuring adequate fire protection for their communities. At the same time, this strategy recognizes that the provincial interest would not be met if the level of service provided by a municipality jeopardized public fire safety. • The guidelines will provide the means for municipalities to make informed choices about public fire protection - responsible choices that will not compromise public safety. • They are the foundation for measuring and determining adequate fire protection. • Provincial regulatory authority would be exercised only where there was a clear and identifiable threat to public safety that a municipality or municipalities fail to address. • Good guidelines, and responsible local government, will ensure that this authority need not be exercised. Application Options The model - "Optimizing Public Fire Safety" is intended to be a companion to the guidelines. Its intended use is to provide consistency in application and to ensure all aspects are considered when applying the guidelines. Optimizing Public Fire Safety Idirmo Eavnrnae Dpe�l4na� i�vcurnthnvn IMMd d kiantld C�as�IRd� FLY �rr�neio a f� sk 3121 us AmpMaw snd hax+asme�k Re�ra! I:.krrpre.twee ;I+Yduskr ;[ C�+rrnitee �'Wa+� Nrudure Cibab�4fp . swm of @xdry ' !rr*emonPSEare ##ertso Fro Pe41a�n Opti � 8woo : Pwcnmwb meagu APPENDIX B PFSG 04-40-03 "Selection of Appropriate Fire Prevention Programs" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Selection of Appropriate Fire Prevention Programs Public Fire Safety Guidelines Section Subject Coding PFSG 04-40-03 Date Fire Prevention and Public Fire Safety Education March 2001 Subject Page Selection of Appropriate Fire Prevention Programs Purpose: To assist in developing or selecting programs to meet the four minimum fire prevention and public education requirements of the Fire Protection and Prevention Act. Introduction: Municipalities must develop a fire prevention and fire safety education program that addresses their needs and circumstances, as determined by the application of sound risk management principles. Minimum Required Services: Section 2. (1) of the Fire Protection and Prevention Act states: (1) Every municipality shall, 1. establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and 2. provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. Therefore, as a minimum acceptable model municipalities must provide the services listed below. The simplified risk assessment should identify the extent to which additional services may be required to meet the local needs and circumstances of specific municipalities. Municipalities may develop a different model for fire prevention and public education services provided they are able to demonstrate that their model meets the mandated requirements of the community's local needs. 3. Simplified risk assessment 4. A smoke alarm program 5. Fire safety education material distributed to residents/occupants 6. Inspections upon complaint or when requested to assist with code compliance Simplified Risk Assessment: A simplified risk assessment must be done for the community to determine the needs and circumstances of the municipality and to establish the level of fire prevention and public fire safety education required. Any significant risks identified through the analysis should be addressed. For example; if the risk assessment indicates a significant life or fire loss in multi -unit residential buildings, a program that will adequately improve their fire safety - such as routine inspections - would be appropriate to address the specific need of the community. The scope and extent of the remaining three required programs can be determined by the results of the simplified risk assessment. Smoke Alarm Program: The objective of a smoke alarm program is the provision and maintenance of working smoke alarms and home escape planning activities for all residential occupancies in the municipality. The activities associated with the program may include any combination of the following: • community surveys • distribution of pamphlets or other education material • instruction to residents regarding smoke alarms • providing smoke alarms at reduced or no cost • installation of smoke alarms • inspecting premises to determine compliance with the smoke alarm provisions of the Fire Code. Fire Safety Material: Fire safety education material may be distributed to residents and/or occupants consistent with the community's needs and circumstances by any combination of the following activities: • distribution of pamphlets or other education material • public service announcements utilizing the available media • instruction to residents/occupants on fire safety matters • presentations to resident groups • attendance at public events Fire safety education material addresses such issues as preventing fire occurrence, the value of smoke alarms, planning escape from fire, and being prepared to deal with a fire incident. The OFM Regional Office can provide assistance with fire safety education material for the public. Fire safety education material may also be found on the OFM website. Public Fire Safety Education: For public fire safety education, the following should be established: • the audience to be targeted • the message that needs to be delivered to improve the fire safety situation must be determined. • an inventory of the available or required resources and programming. • the most appropriate method of delivering the message. • the duration or frequency of the message delivery. Inspections: Inspections of properties must be done, or arranged for, by the municipality when: • a complaint is received regarding the fire safety of a property • a request is made to assist a property owner or occupant to comply with the Fire Code and the involvement of the Chief Fire Official is required by the Ontario Fire Code Any inspection conducted must include notification of the property owner or responsible person and appropriate follow-up with enforcement, if necessary. Inspection Program Considerations: For inspections, the following factors should be considered: • The type of inspections to be conducted and the buildings to be inspected. For example: routine inspections of all multi -unit residential buildings, new construction inspections of all buildings, smoke alarm checks of single family residential buildings. • The methods of inspection appropriate for the circumstance. This will have implications for the amount of time required to inspect, as more comprehensive inspections require more time. • The category of buildings being inspected and the skills and knowledge required to inspect them. The more complicated the building, the more skill and knowledge required. • The frequency that the properties will be subject to inspection Program Selection: IIn addition to the minimum services outlined above, programs need to be selected, developed and implemented that address any risks identified through needs analysis. Programs being considered need to be effective for the type of concerns identified. For example; a routine inspection program would be effective to address concerns for the fire safety of a group of buildings that demonstrate poor performance during fire incidents. Similarly, a public fire safety education program such as Older and Wiser would be effective where there is a lack of knowledge of fire safety behaviour by the elderly and this lack causes them to suffer significant fire losses. Each area of program activity has a number of factors which need to be considered. Service Delivery Options: The Fire Prevention Effectiveness Model may also assist with informed decision making about fire prevention and public education programs. Once the needs analysis component of the model has been completed, fire department managers can decide what programs are appropriate to address their identified local risks. There are a number of options for delivery of selected fire prevention programs. They can be provided by fire department staff - personnel dedicated to fire prevention and/or fire suppression staff. Other persons in the community may be used. Agreements with other communities may be made for provision of services. The OFM provides assistance in delivery of fire prevention programs through the Assist Program. Policy Requirements and Other Relevant Issues: Any selected/mandated programs must have sufficient resources, human and others, to be effectively delivered. Persons assigned responsibility for delivering programs must be adequately trained. Policy decisions must be made with appropriate authority and records made of the level of service decreed. Appropriate program guidelines must be established for each program to be delivered. Any fees for services should be discussed and decided upon at the policy level. Legal counsel should be consulted regarding any changes to the delivery of services to the community. Codes, Standards, and Best Practices: Codes, Standards and Best Practices resources available to assist in establishing local policy on this assessment are listed below. All are available at http://www.mcscs.ius.gov.on.ca/ . <httn://www.mcscs.ius.gov.on.cal> Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also PFSG 01-02-01 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyguidelines/01-02- 01.htm1> Comprehensive Fire Safety Effectiveness Model 04-12-13 <.. /.. /.. /../english/firemarshal/fireserviceresources/publicfiresafetyouidelines/04-12- 13.html> Core Services 04-40A-03 <.. /.. /.. /.. /enclish/firemarshal/fireserviceresources/yublicfiresafety4uidelines/04-40a- 03.html> Simplified Risk Assessments 04- 40 B-12 <.. /.. /.. A. /enolish/firemarshal/fireserviceresources /yublicfiresafety4uidelines/04-40b- 12.html> Smoke Alarm Programs 04-40C-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/04-40c- 12.html> Public Education Programs 04-40D-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/04-40d- 12.html> Inspection Programs Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Selection of Appropriate Fire Prevention Programs Public Fire Safety Guidelines Section Subject Coding PFSG 04-40-12 Date Fire Prevention and Public Fire Safety Education March 2001 Subject Page Selection of Appropriate Fire Prevention Programs Purpose: To assist fire service managers in identifying the minimum fire prevention and public education activities required to comply with the Fire Protection and Prevention Act Introduction: Municipalities must develop a fire prevention and fire safety education program that addresses their needs and circumstances. Minimum Required Services: Section 2. (1) of the Fire Protection and Prevention Act states: (1) Every municipality shall, 1. establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and 2. provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. Therefore, as a minimum acceptable model municipalities must provide the services listed below. The simplified risk assessment should identify the extent to which additional services may be required to meet the local needs and circumstances of specific municipalities. Municipalities may develop a different model for fire prevention and public education services provided they are able to demonstrate that their model meets the mandated requirements of the community's local needs. 1. Simplified risk assessment 2. A smoke alarm program 3. Fire safety education material distributed to residents/occupants 4. Inspections upon complaint or when requested to assist with code compliance Simplified Risk Assessment: A simplified risk assessment must be done for the comm unity to determine the needs and circumstances of the municipality and to establish the level of fire prevention and public fire safety education required. Any significant risks identified through the analysis should be addressed. For example; if the risk assessment indicates a significant life or fire loss in multi -unit residential buildings, a program that will adequately improve their fire safety - such as routine inspections - would be appropriate to address the specific need of the community . The scope and extent of the remaining three required programs can be determined by the results of the simplified risk assessment. Smoke Alarm Program: The objective of a smoke alarm program is the provision and maintenance of working smoke alarms and home escape planning activities for all residential occupancies in the municipality. The activities associated with the program may include any combination of the following: • community surveys • distribution of pamphlets or other education material • instruction to residents regarding smoke alarms • providing smoke alarms at reduced or no cost • installation of smoke alarms • inspecting premises to determine compliance with the smoke alarm provisions of the Fire Code. Fire Safety Material: Fire safety education material may be distributed to residents and/or occupants consistent with the community's needs and circumstances by any combination of the following activities: • distribution of pamphlets or other education material • public service announcements utilizing the available media • instruction to residents/occupants on fire safety matters • presentations to resident groups • attendance at public events Fire safety education material addresses such issues as preventing fire occurrence, the value of smoke alarms, planning escape from fire, and being prepared to deal with a fire incident. The OFM Regional Office can provide assistance with fire safety education material for the public. Fire safety education material may also be found on the OFM website. Inspections: Inspections of properties must be done, or arranged for, by the municipality when: • a complaint is received regarding the fire safety of a property • a request is made to assist a property owner or occupant to comply with the Fire Code and the involvement of the Chief Fire Official is required by the Ontario Fire Code Any inspection conducted must include notification of the property owner or responsible person and appropriate follow-up with enforcement, if necessary. Codes, Standards, and Best Practices: Codes, Standards and Best Practices resources available to assist in establishing local policy on this assessment are listed below. All are available at http://www.mcscs.ius.gov.on.ca/ . <http://www.mcscs.-jus.goy.on.cal> Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also PFSG 01-02-01 Comprehensive Fire Safety Effectiveness Model 04-12-13 <.. /.. /.. /.. /enoylish/firemarshal/fireserviceresources/yublicfiresafetyouidelines/04-12- 13.html> Core Services 04-40A-03 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publigfiresafety4uidelines/04-4Oa- 03.html> Simplified Risk Assessments 04- 40 B-12 <.. /.. /.. /../enolish/fire marshal/fireservice res ources/publicfiresafetyauide lin es/04-4Ob- 12.html> Smoke Alarm Programs 04-40C-12 <.. /.. /.. /.. /enolish/firemarshal/fireserviceresources/publiofiresafetyauidelines/04-40c- 12.html> Public Fire Safety Education Materials 04-40D-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/04-40d- 12.html> Inspections Upon Request or Complaint APPENDIX C PFSG 04-08-10 "Operational Planning: An Official Guide to Matching Resource Deployment and Risk" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Operational Planning: An Official Guide to Matching Resource Deployment and Risk Public Fire Safety Guidelines Section Emergency Response Operational Planning: An Official Guide to Matching Resource Deployment and Risk 1.0 Purpose Subject Coding PFSG 04- 08-10 Date January 2011 1.1 Municipalities are responsible for the funding and delivery of fire protection services in accordance with Section 2 of the Fire Protection and Prevention Act, 1997 (FPPA). In order to meet the intent of Section 2 of the FPPA, municipalities are expected to implement a risk management program. The evaluation tool Operational Planning: An Official Guide to Matching Resource Deployment and Risk, found in the Appendix, is to be used as part of a risk management program. The purpose of this guideline is to encourage municipalities and fire departments to use this tool so that they can make informed decisions regarding the delivery of fire suppression services. 2.0 Scope 2.1 This guideline applies to all municipalities. 3.0 Risk Management 3.1 In order to be in compliance with clause 2.(1)(a) of the FPPA, a fire department must have completed a simplified risk assessment, one of the four key minimum requirements for fire protection services. It is expected that this assessment be reviewed and updated periodically to support informed decision making and evaluation of program delivery. 4.0 Legislation 4.1 This guideline is issued under the authority of clause 9.(1)(d) of the FPPA. 4.2 Municipal Council, obligated by the FPPA to provide fire protection services, must • establish levels of service commensurate with needs and circumstances; and • provide fiscal resources for staffing, apparatus and equipment to support the established level of service. 4.3 Fire Chief Person appointed by the council of a municipality, responsible for the delivery of fire protection services, and accountable to the council. 4.4 Fire Department The fire department delivers the services as approved by municipal council and at the direction of the fire chief. Operational Planning: An Official Guide to Matching Resource Deployment and Risk can help fire departments to • assess and analyze fire risk; • determine current capabilities: staffing, apparatus, equipment, etc.; • find gaps; and • work out options, develop recommendations and present them to municipal council using a standardized format. 4.5 Clause 2.(1)(b) Every municipality shall provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances 4.6 Subsection 2.(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 4.7 Subsection 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. 4.8 Clause 9.(1)(a) The Fire Marshal has the power 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. 4.9 Clause 9.(2)(b) It is the duty of the Fire Marshal to advise municipalities in the interpretation and enforcement of this Act and the regulations. 4.10 Clause 9.(2)(d) It is the duty of the Fire Marshal to develop training programs and evaluation systems for persons involved in the provision of fire protection services and to provide programs to improve practices relating to fire protection services. 5.0 References OFM documents, programs and courses • Comprehensive Fire Safety Effectiveness Model • Public Fire Safety Guidelines • Shaping Fire Safe Communities - Phases 1 and 2 • Essentials for Municipal Decision Makers [course] • Essentials for Fire Service Leaders [course] National Fire Protection Association standards • NFPA 1710 and NFPA 1720 6.0 Appendix Evaluation tool: Operational Planning: An Official Guide to Matching Resource Deployment and Risk. Workbook PDF version <.. /.. /.. /.. /stellent/groups/public/Comcscs/Cd www/C@ofm/documents/webasset/ecofmOD1395. pdf> HTML version <.. /.. /.. /../enolish/firemarshal/fireserviceresources/vublicfiresa fetvauidelines/04-08- 10a t1. html> APPENDIX D PFSG 01-02-01 "Comprehensive Fire Safety Effectiveness Model" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Comprehensive Fire Safety Effectiveness Model Considerations Public Fire Safety Guidelines Subject Coding PFSG 01-02-01 Section Date General January 1998 Subject Page Comprehensive Fire Safety Effectiveness Model Considerations Comprehensive Fire Safety Effectiveness Model Considerations For Fire Protection & Prevention In Your Community Fire Protection & Prevention In Your Community Every day, local elected leaders, managers and fire chiefs are faced with decisions relating to the provision of fire and other related emergency services for their community. Now, more than ever there are constant pressures of doing "more with less". Many government officials are hard-pressed to justify any increase in expenditures unless they can be attributed directly to improved or expanded service delivery in the community. This effort has often been hampered by the lack of criteria by which a community can determine the level and quality of fire and other related emergency services it provides to its residents. The Comprehensive Fire Safety Effectiveness Mode/ is a document which can assist communities in evaluating their level of fire safety. The provision of fire protection in Ontario is a municipal responsibility. The level and amount of fire protection provided is determined by the residents of the community through decisions made by and support provided by the local municipal council. Due to a wide variety of factors, the Ontario fire service finds itself in a period of change. Increased community expectations coupled with reduced financial resources are forcing all communities to critically assess their fire protection needs and to develop new and innovative ways of providing the most cost effective level of service. A refocus on fire protection priorities is providing progressive fire departments and communities throughout Ontario with an exciting opportunity to enhance community fire safety. There is more to providing fire protection than trucks, stations, firefighters and equipment. The Office of the Fire Marshal has developed the Comprehensive Fire Safety Effectiveness Model which can be used as a basis for evaluating fire safety effectiveness in your community. This model looks at community fire protection as the sum of eight key components, all of which impact on the fire safety of the community. Deficiencies in one of the components can be offset by enhancements in another component or components. Community Master Fire Protection Plan Every fire department should be guided by a master or strategic plan. This Community Master Fire Protection Plan traditionally focused on the identification of fire hazards and planning an appropriate suppression force response. Today, hazard or risk assessment has expanded well beyond the fire problem in the community to include emergency medical incidents, hazardous materials incidents and many other emergency situations. Paradigms are being shifted to emphasize the concept of fire prevention and control systems as communities attempt to effectively reduce losses experienced. This document should include plans for human resources and program financial support as well as the many external influences that impact on the fire service. The information contained with the Community Master Fire Protection Plan should provide a clear and concise overview of the most recently adopted organizational goals and objectives, budgetary commitments, mission statements and assessments of organizational activity. The document should cover a long range planning period of five to ten years. FIREROUND EFFECTIVENESS IMPACT OF FIRE INTERVENTION TIME BUILT-IN SUPPRESSION CAPABILITIES =IRE PREVENTION PROGRAM EFFECTIVENESS ATTITUDE DETECTION FIRE RISK This chart shows each of the factors which make up the comprehensive model. Although the chart is divided equally, each factor will in reality contribute differently to the total level of protection provided to a community. This chart shows how the comprehensive model can be applied to a typical fire department. The "gap" depicts the difference between the existing level of protection and the ideal. I FIREOROUND EFFECTIV EKES INTERVE NTIOI` BUILT-IN SUPPRESSION CAPABILITIES IMPA'T OF FIRE PREVENTION PROGRAM =ECTIV ENESS I FIREOROUND EFFECTIVENES INTERNE NTIOh BUILT-IN SUPPRESSION CAPABILITIES DETECTION ATTITUDE SIS K IMParT ClF FIRE PREVENTION PROGRAM =ECTIV ENESS OAP IMPACT OF FIRE FIREOROUND FIRE PREVENTION EFFECTIVENESS PROGRAM EFFECTIVENESS INTERVENTION TIME ATTITUDE BUILT-IN SUPPRESSION CAPABILITIES /FIRE RISK DETECTION ATTITUDE SIS K DETECTION This chart shows how the 11gap" can be reduced by strengthening a number of factors in order to increase the overall level of protection provided to the community. It is critical that the fire department be guided by a written philosophy, general goals and specific objectives which are consistent with the legal mission of the department and are appropriate for the community it serves. These should all be integral components of the Community Master Fire Protection Plan. Application of the Comprehensive Fire Safety Effectiveness Model will enable municipalities to make informed choices by providing an objective and innovative approach to public fire protection - a new way of thinking. Communities are able to determine if the level of service provided matches the risk in the community. 1. Impact Of Fire: The impact of fire in any community can be significant with far reaching consequences. Not only do fires result in deaths and personal injuries but they also cause substantial property and environmental loss. Often overlooked are factors such as the historical value of unique local properties as well as the potential for lost tax assessment. There are many communities in Ontario where the loss of a particular occupancy will have a serious impact on the local economy. Involvement in fire often has a negative psychological impact on those affected. Every community should carefully assess the total impact of fire. This assessment should be used as a basis for a Community Master Fire Protection Plan that addresses all areas of community fire safety including fire prevention and life safety as well as the delivery of suppression and rescue services. • Does your community have a property whose loss would result in a significant financial burden to the community? • Does your community have a property whose loss would result in a significant impact of local employment? • Does your community have a property which if involved in fire would pose a significant environment risk? • Does the master fire protection plan adequately consider the impact of a major fire? 2. Fire Prevention Program Effectiveness: • Perhaps the most important component of and community's fire protection services is the effectiveness of it's fire prevention program. Legislation, regulations and standards pertaining to fire safety focus primarily on fire prevention. Enforcement of these codes is one of the most effective ways of reducing the loss of life and property due to fire. In addition, public fire safety education programs have the potential to substantially reduce the loss of life and property due to fire. Every community should strive to provide an adequate, effective and efficient program directed toward fire prevention, life safety, risk reduction of hazards, the detection, reporting of fire and other emergencies, the provision of occupant safety and exiting and the provisions for first aid firefighting equipment. • Does your community have a fire prevention and public education policy that adequately addresses: • inspections? • public education? • code enforcement? • investigation? • Does your community provide inspections upon request? • Does the fire department respond to complaints? • Does your community's fire prevention program address public life safety in structures from pre - construction planning until demolition through application of the Building Code and Fire Code? 3. Public Attitude: North Americans tend to be more complacent about fires and the resulting losses than other parts of the industrialized world. Communities often accept the consequences of fire and provide community support. Comprehensive insurance packages are available to mitigate damages. Communities need to assess the resident's attitudes toward fire to determine what role it plays in determining the extent of fire losses. Properly designed public fire safety education programs will significantly improve public attitudes toward the prevention of fire. This will result in lower fire losses. Every community should assess public attitudes toward fire and life safety issues. This assessment should be used to develop and deliver public fire safety education programs to enhance community fire safety. • Do the residents of your community demonstrate an interest in public fire safety? • Is there a general awareness of fire safety in your community? • Is there a sense of personal responsibility for one's own safety within the community? 4. Fire Risk: The characteristics of your community affect the level of fire risk that needs to be protected against. Older buildings pose a different set of problems than newer buildings constructed to current construction codes. High rise, commercial and industrial occupancies each present unique factors which must be considered. Construction, occupancy type, water supply, exposure risks, furnishings and the risk which the combination of these factors pose to the occupants must be assessed. The presence of effective built-in suppression and/or protection measures can reduce the fire risk. 360/a of all structural fire alarms and 46% of all structural fire deaths in Ontario during the period 1990-1994 occurred in single family, detached, residential occupancies. Every community should carefully assess its fire risk. The results of this risk assessment should be used as a basis for determining the level, type and amount of fire protection provided and should be a critical factor in the development of the community master fire protection plan. • Has your community assessed the fire risk? • Does your community have a master fire protection plan which takes into account the results of your fire risk analysis? • Has the fire department identified all the possible actions it could take to reduce the number of fire incidents that occur in the community? • Does your community planning process consider the impact of new developments and industries on the fire department? 5. Detection Capabilities: The presence of early warning detection capabilities notifies occupants and allows them sufficient time to escape. It also allows for earlier notification of the fire department. Communities who encourage the widespread use of early warning detection systems have the potential of significantly reducing notification time, which, when coupled with effective fire department suppression, results in a corresponding reduction of loss of life, injuries and damage to property from fire. Every community should develop and implement programs that promote the use of early warning detection systems in all occupancies. These programs should be a fire protection priority. • Does your community have a program to ensure that all occupancies are provided with adequate early warning detection devices? • Does your community have a program to ensure that residents are familiar with the importance and proper maintenance of early warning detection devices? • Does your community promote the use of direct connect early warning detection devices in residential as well as commercial, industrial and assembly occupancies. 6. Built -In Suppression Capabilities: Traditionally, the use of built-in suppression has been limited to fixed fire protection systems associated with assembly, commercial, industrial and manufacturing occupancies. Application of this concept has been limited in the residential environment. These systems, particularly the use of automatic sprinkler systems play an important role in minimizing the effects of fire by controlling its spread and growth. This enables the fire department to extinguish the fire more quickly and easily. Although effective in newer buildings, it is often difficult if not impossible to provide for built-in suppression systems that effectively control fires in wall cavities and concealed spaces associated with certain older types of construction or reconstruction. The use of built-in suppression systems should be a fire safety priority in all communities. Programs should be developed and delivered that promote the advantages of built-in suppression systems for residential, commercial, industrial and assembly occupancies. • Does your community promote the use of built-in suppression devices in all types of occupancies • residential? • commercial? • industrial? • assembly? • institutional? • Does your community consider built-in suppression devices and early warning detection as an alternative to traditional concepts of fire protection? 7. Intervention Time: This is the time from ignition until effective firefighting streams can be applied to the fire. There are many factors influencing this component of the model: • the time required to detect the fire • notification time from the public • notification time to the firefighters • preparation time for the firefighters to leave the station • the distance between the fire station and the response location • the layout of the community • impediments such as weather, construction, traffic jams, lack of roads, etc. • set-up time Fire department intervention time is crucial in determining the consequences of a fire in terns of deaths, injuries and loss of property and damage to the environment. Effective fire prevention and public education programs can reduce intervention time which will result in increased fire department effectiveness. T E &I N E R A T U R. F 11melTemperature RiBlationshIp -40- I1JTFR'VP-;T10NTIMF,. �'� S Every community should develop and implement a range of programs and initiatives that reduce intervention time. These programs and initiatives should address all aspects of intervention time from the time required to detect the fire to the set-up time of the fire department. • Are all occupancies in your community equipped with suitable smoke alarms and provided with fire emergency escape plans? • Do all residents in your community know how to report a fire or other emergency? • Does your community have a common fire emergency reporting number? • Is the fire department dispatched by an appropriate dispatch facility? • Does the community's master fire protection plan consider the different turn -out times for volunteer and/or full-time firefighters? • Has the department instituted an appropriate fire department training and education program? • Are all structures within the community clearly identified using an accepted numbering system? • Has the department instituted a policy of having the closest fire department respond even though that fire department may be from another municipality? S. Fireground Effectiveness: The fireground effectiveness of the fire department has a wide range of benefits for your community. Not only does the fire department's performance affect the degree of damage to the environment and property, it also has a direct relationship to personal injury and death from fire. Many factors influence the effectiveness of any fire department. Included in these factors are: • fire department organization • community support of fire department • firefighter availability • firefighter and fire officer training • adequate resources which are properly maintained • time effective response to emergency incidents The fire department should strive to provide an adequate, effective and efficient fire suppression program designed to control/extinguish fires for the purpose of protecting people from injury, death or property loss. • Does your fire department have a comprehensive training program and evaluation system for all positions? • Does the fire department have a system to ensure that an adequate number of trained personnel respond to all emergencies within a reasonable time period? • Is your fire department provided with adequate resources to safely and effectively handle the risks it will be called upon to mitigate? • Does the fire department use standard operating guidelines to define expected fire department actions for the wide variety of situations it might encounter? • Does your fire department have automatic response agreements to guarantee an adequate level of personnel at all times? The answers to the questions in this document will provide you with some indication of the level of fire safety in your community, however this is only the start. Application of the OFM Comprehensive Fire Safety Effectiveness Model will permit you to develop a plan for the safe, effective and economical delivery of fire protection services in your community. Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non- commercial purposes only. Further assistance is available from your local OFM representative APPENDIX E PFSG 01-01-01 "Fire Protection Review Process" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Fire Protection Review Process Public Fire Safety Guidelines Section General Subject Fire Protection Review Process Purpose Subject Coding PFSG 01-01-01 Date January 1998 Page To provide a description of a simple and practicable system to enable decision makers to make informed choices. It ensures formal interaction between council with its policy setting responsibilities, the municipality with its corporate management objectives, and the fire department with its operational expertise. Introduction • The overall objective of any fire protection program is to provide the optimum level of protection to the community, in keeping with local needs and circumstances. • Extensive research has demonstrated that there are a variety of factors that will have an impact on the fire department's capacity to fulfil this objective. • Conversely, there are many different options that a municipality may pursue to improve the efficiency and effectiveness of its fire protection system. • Local circumstances will have a profound effect on which factors are most important for any one municipality, and what options are available for its fire protection system. • Selecting among these options is an extremely complex task. • Success will require a combination of specialized expertise in fire protection, and a thorough appreciation of your municipality's economic, social and political circumstances. 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P�MaxnsnCQ aka#u03 Overview Stage 1: Set Policy Parameters Stage 2: Determine Local Circumstances Stage 3: Status Report Stage 4: Determine Fire Protection Strategy Stage 5: Develop Master Fire Plan Stage 6: Monitor, Evaluate and Revise Stage 7: Performance Measures • Every municipality operates under a specific set of policy parameters -- basic tenets that define the role of the municipal government in the community. • In essence, it is the political philosophy of the municipality. • These parameters reflect the culture of the local community and will have a profound impact on the fire protection strategy that you develop. • Policy parameters include, for example: • Public Expectations -- does the public expect the municipality to address its needs or is there a fairly high level of personal self reliance? • Service Delivery Strategy -- how open is your community to alternate forms of service delivery and financing such as out -sourcing or fee-for-service? • Level of Satisfaction -- are you satisfied with the level of fire protection in your community, and the efficiency and effectiveness of the fire protection system? • Funding Policies -- what impacts do your funding policies and practices have on the services you deliver? How do you account for capital expenditures? Are you prepared to issue debentures? • Competing Priorities -- what priority does public fire safety have in your community in comparison to the other services that you provide? • Receptiveness to Change -- does the public recognize the need for change, and would they accept the implications of such change? • It is extremely important that you work through these questions from a fire protection perspective, and that you include all of the key participants in the process. • It need not be an excessively formal process, but everyone involved in the review should have an opportunity to discuss the broader context within which the fire department must operate. • The results of this discussion should be reflected in the "terns of reference" for the review. • It will help to ensure that the review remains focused. It will also encourage participants to be open to innovations, and conversely, it will help to ensure that staff involved in the review do not spend unnecessary time and resources analyzing options that are not viable. Stage 2: Analyse Local Circumstances Separate guidelines are available that address each of the three main issues that define the local circumstances of a municipality: • Assessing Economic Circumstances from a Fire Protection Perspective (PFSG 02-03-01) • Assessing Fire Risk (PFSG 02-02-12) • Assessing the Existing Fire Protection Services (PFSG 02-04-01) The following is an overview of the issues that these three guidelines address. Economic Circumstances • What are your expectations for economic growth? • How much development do you expect to occur? • What type of development do you expect? • How is your population changing? (Demographics) • If the fire department receives the bulk of its financing from the tax base; • is the tax base increasing, shrinking, or relatively steady? • is the tax base shifting? • Describe the assessment • A review of your economic circumstances should involve more than just an assessment of future demand and available resources: • A growing community creates new demand for emergency services, but the type of growth you are experiencing may require a very different kind of response. For example, growth resulting from an in -migration of newly retired residents will create very different demands than growth resulting from the recovery of the local resource industry. • There are many more ways in which your fire protection system can address new residential development than there are for older neighbourhoods. An initial investment in sprinkler and/or detection systems when new developments are being planned can reduce the need for new fire stations in the future. • Economic development and expansion may have a significant impact on the availability of resources for fire protection. It tends to be easier to attract volunteers in a self-contained community than in a similar -sized area that serves as a bedroom community for a large city. Is the make-up of your community changing? • This stage of the review is the first opportunity for you to co-ordinate your planning strategy with your fire protection strategy. Accordingly, it is very important for both fire and planning officials to work closely together on this aspect of the review, perhaps by way of a sub- committee Fire Risk The Fire Risk in your community is a function of: • Potential for Loss, which depends on the extent to which buildings comply with relevant fire and building codes, how buildings are used, the public's attitude toward fire, and the use of special measures such as automatic detection and/or suppression systems. • Consequences of Fire, such as the effect of a fire at a major industry on local employment, assessment and economic activity. This also includes social impacts resulting from the loss of an historic or recreational facility, or the impact of fire on a sensitive environmental area. • Local Infrastructure, such as water supply, communications, the quality of roads, and physical barriers such as rivers or railroads. • Building Stock, including the age of buildings, the density and type of construction, their height, and the mix of commercial, industrial and residential uses. • Since there are so many factors that affect fire risk, it tends to vary considerably from location to location. In fact, fire risk in one part of a municipality will often be very different from in another, particularly in rural areas. Accordingly, there is no need for the fire department to provide a uniform level of service throughout the municipality. The service you provide should be tailored to the risks faced. A thorough risk assessment can also avoid invalid comparisons between your fire department and others. A municipality with a similar population may have very different fire risks, and therefore very different fire protection needs. A good risk assessment will ensure that such comparisons are valid. By providing a valid basis for comparison, a good risk assessment can also provide confidence that innovations introduced elsewhere can be successfully applied in your municipality. Existing Fire Protection System • Examining the existing fire protection system is perhaps the most time consuming component of the assessment process. The objective is to obtain a clear picture of the nature of the fire protection system as it exists today. The following broad areas should be examined: Role and Mandate -- What range and scope of services is the department expected to provide (fire suppression, rescue, hazmat, etc)? How does it relate to neighbouring fire departments (mutual - aid, automatic aid)? How does it relate to other sections of the municipality? Structure and Organization -- What type of department is it (full-time, composite, volunteer)? What is its total staff, facilities, apparatus and equipment? How many layers of management? Services and Support -- Briefly describe the services provided by the various functional sections of the fire department and describe the support mechanisms for these services. Emergency Operations -- Describe the types and extent of emergency operations conducted by the fire department and include such things as incident command systems and operational support. Financial & Resource Analysis -- Describe in detail the funding, budgeting and resource allocation of the fire department, including the individual functional divisions. Fire Protection and Prevention Act - indicate whether or not the department/municipality is in compliance with this Act. Stage 3: Status Report • The purpose of this stage is to assist in the preparation of a report to council outlining the findings of the analysis of the following: • economic circumstances • risk assessment • capabilities of existing fire protection service • The report will include details of the existing circumstances • The report will also include and identify strengths, limitations, threats and opportunities respecting the existing fire protection services. • The purpose of the report is also to elicit the expectations of the decision makers, and confirm their commitment to proceeding to the master planning process. Stage 4: Determine Fire Protection Strategy • This stage of the process involves a review team assisting council in making a determination of the future fire protection strategy. • The procedure involves analyzing economic circumstances, risk assessment and the capabilities of the existing fire protection service (including core services). This is accomplished in three levels, as follows: • council considerations • administrative considerations • fire department considerations • Your review should consider, and perhaps emphasize the need for residents, industry and others to accept increased responsibility for the improvement of public safety. • The review must look beyond the fire department's fire fighting capability in fulfilling its responsibility to provide for public safety. • Today's economic conditions - evidenced by reduced budgets, revenues, hiring freezes, reductions in staffing levels through attrition or otherwise, delayed apparatus and equipment purchases - forces the making of hard decisions about the resources required for local fire protection. • Options and alternatives are therefore essential. For example, it may be considered appropriate to re -focus on developing fire prevention and public education programs rather than expanding fire fighting forces, or consider resources in surrounding communities and how those resources might be utilized to meet your needs. • Determining the future fire protection strategy of your municipality is accomplished by way of providing options for the consideration of council. • For this process to be successful, it is imperative that there be full and open consultation with all of the stakeholders. • Stakeholders are the people and organizations with an interest in the fire service, including: • fire department staff and management • municipal staff and management • municipal administrators • council • residents • business • industry • planning and co-ordinating agencies and organizations • provincial government ministries • county/district/regional organizations • other municipalities • Schematic diagram of the model: Optimizing Public Fire Safety highlighting Stage 3. • police • ambulance • other umbrella organizations: • firefighter associations (full time and volunteer) • AMO • OAFC • CAFC • Consultation with stakeholders during the development, assessment and operational impact of various options is necessary for three reasons. • First the review team will obtain expert advice on key elements of the various options. Obtaining expert advice from all stakeholders ensures that all parties to the process: • fully appreciate why the process is being carried out • clearly understand the strategy, initiative or option that will be evaluated • participate in identifying potential evaluation questions or issues, and • help shape the options • Second, it will help ensure a surprise -free environment for all parties to the review process. Ensuring a surprise -free environment is necessary for the review team facilitator(s) to create a receptive, productive environment for the option evaluation process. Except in extremely rare cases, stakeholders should be aware of the option evaluation process. Nothing is more damaging to such a process than to spring it on stakeholders. They will usually react suspiciously and defensively, see the process as an intrusion, find fault with it, and actively lobby to circumvent its recommendations. • Finally, the stakeholders will use the consultation as an opportunity to market the various options. Marketing the various options and their potential is essential if it is expected that they will lead to program or service changes, particularly significant ones. Change is not an event, but a process, and usually a slow process, and conditions generally needs to be cultivated. Like a building, the foundation for change needs to be laid well in advance of its construction. Stakeholders must accept the need to change before it can occur. For the review team and its facilitator(s), creating this comfort level is an essential ingredient of success. • The review team and facilitator(s) usually consult with the stakeholders through established committees. Primary discussions between the facilitators and the stakeholders are usually conducted on an individual basis, with the committee acting as a clearinghouse. Facilitators, who almost always shun formal committees and attempt to consult by only using individual or team interviews, enjoy limited success. While individual consultation may provide a more direct and confidential input into the process, this practice has drawbacks. It often results in stakeholders seeing the process as the product and possession of the facilitator. Stakeholders often feel that they have not participated fully and equally in planning the study. And, there is the chance they can complain that the facilitators have filtered their concerns • This review process will result in alternatives for your existing fire protection services, and options and considerations for council's vision of the future of the fire service. • All options will be prioritized, assessed, costed where appropriate and clearly indicate the operational impact. • Then council will be in a position to make better informed decisions for creation of your master fire pla n. Stage 5: Develop Master Fire Protection Plan • Master fire plans, properly introduced, are a valuable tool in identifying management options for providing desired fire protection levels to a community. Ultimately, a good plan will lead to a more fire safe community. • A master plan, pared to its essentials, presents the programs or projects, the costs, and the schedules for developing and maintaining the fire protection system that has been accepted and approved by council on behalf of the community, based on a price which the public can afford. • Master planning itself is not a new concept. Many municipalities are involved in the process with varying degrees of success. • Master planning for fire protection allows each community to determine the best allocation of resources to achieve an acceptable level of fire protection. • An appropriate plan can only be developed under the following conditions. • Schematic diagram of the model: Optimizing Public Fire Safety highlighting Stage 5. • The plan forms the basis for the fire protection budget, through identification and description of time -phased programs and projects to be implemented throughout the planning period. • The plan considers the following factors. • The current and future fire protection environment by establishing and maintaining a comprehensive data base. • The acceptable life and property risks by setting goals and objectives. • The fire protection system that provides the level of service commensurate with the level of accepted risk. • The funding required to implement the plan. • The assignment of authority and responsibility. • The procedures for carrying out and updating the plan. • The master fire plan defines the community fire problem and provides the future direction of the delivery of fire protection services. • The plan will require continuous updating to provide a current picture of the needs of the community. • There are several benefits to developing a master fire plan. • Supports the risk management program by identifying programs and levels of service. • Improves public relations and promotes interest and direct involvement within the community. • Sets standards of service the fire department is capable of providing. • Potentially decreases costs, for fire protection and/or insurance coverage. • Contributes to a reduction in the number of fires, fire deaths, fire injuries and property loss. • Makes best use of available resources. Defines by policy of council the types, level and quality of fire protection services to be provided to the community. Stage 6: Monitor, Evaluate & Revise Introduction: This stage of the municipal fire protection review process involves three parts: • Monitor • Evaluate • Revise • Just as the type and level of fire services provided are a municipal responsibility, so are the evaluation, monitoring and revision of such services a municipal responsibility. • They may, however, be subject to outside scrutiny. Objectives: • The objectives of the municipality, as mirrored in the fire department master plan, are the starting point for any evaluation. • These objectives should be consistent with the review process mission statement and express what the process is to accomplish. • The objectives should be both specific and measurable. Activities: • The activities are the operational aspects of the identified objectives. • Activities should be logically related to objectives. • Immediate Outcomes are the effects that are expected to occur as a direct result of activities. These outcomes may include changes that affect people or processes. For example, an immediate outcome might be the improved delivery of a specific service. • Ultimate Outcomes include the larger societal level changes that are expected from the activities. An example would be an expected improvement in compliance with the Fire Code. Ultimate outcomes are often dependant on immediate outcomes. In this example, success might be dependent on providing an appropriate public education program. Monitor: • Notwithstanding it is considered prudent for municipalities to monitor programs, services and activities, the Fire Protection and Prevention Act includes the following: • PART II (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." and, • PART III 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 the services.". • Program monitoring is a systematic attempt to measure both of the following: a. program effectiveness -- are the programs and services reaching their intended marks?, and • Program delivery -- does the service being provided match what was intended to be delivered? Program monitoring need not always be complicated and complex, as it often can be as simple as keeping track of the activities involved • Program monitoring concentrates on program service outputs rather than program outcomes Evaluate: • Programs adopted and implemented through the master fire plan should have built-in evaluation procedures • Evaluations are not simply the responsibility of municipal politicians and or administrators, but additionally, is an administrative function of the fire department. Internal Evaluators • as employees of the fire department, internal evaluators have intimate knowledge of the department's policies, procedures, politics and people • they know both the formal and informal channels for communicating and accomplishing tasks. • this knowledge permits them to select methods that fit the unique situation of the department • internal evaluators long term commitment to the fire department can lend credibility to their efforts and help forge positive working relationships with managers and staff • they can build trust over time that helps reduce the anxiety normally associated with evaluation activities • because they are employees, internal evaluators are available as an on going corporate resource • this puts internal evaluators in an excellent position to communicate relevant information in a timely fashion • it also permits internal evaluators to participate actively in long-range planning by making crucial evaluative information available for strategic planning and policy decisions • it affords internal evaluators the opportunity to consult with and provide information to various management levels within the organization, enabling them to enhance the utilization of evaluation information • internal evaluators are often responsible for correcting problems and advocating change rather than only identifying difficulties and making recommendations • the focus of internal evaluation often includes not only program outcomes and processes, but also the factors that influence program performance, such as structure, operations and management • the use of internal evaluators, some of whom could conceivably be part of the problem, then can become part of the solution External Evaluators • are usually perceived as being more objective because they are not fire department employees and are therefore not subject to all of the pressures of organizational life • Internal evaluators now often work in partnership with external evaluators to obtain the external evaluators' specialized skill and objectivity while retaining the internal evaluators' knowledge of the department • All evaluators, whether internal or external, have their biases. Revise: • Consider the benefits and results of the foregoing monitoring and evaluation processes to assist in determining if any revisions are necessary. • Some of the principal benefits are: • any gap between goals and performance • cost effectiveness and efficiency of the program/service • how is the program operating/functioning? • issues that could jeopardize the program/service • program/services strengths • program/services weaknesses • to what extent are the citizens being served • whether desired and/or undesired outcomes have taken place • This information is useful for: • clarifying the mission, purpose and goals • describing the programs and services • facilitating the refinement and modification of program or service activities • fulfilling accountability requirements • guiding allocation of resources and personnel • maintaining quality of services and programs • program decision making, such as continue, cancel, cut back, change, expand • setting priorities • weighing costs and benefits of alternatives Stage 7: Performance Measures Purpose • The purpose of this section of the guideline is to assist in developing and using performance measures. • The guide answers the following questions: • What are performance measures? • How can they be used • What is the best way of doing this? • Where does one start? Introduction • Data and information collected and used by managers in the public sector usually pertain to inputs, outputs and processes. • Examples of these measures are as follows: INPUTS : Amount of money spent on training Number of staff assigned to fire prevention Number of staff assigned to training PROCESS Number of firefighters at O.F.C. Number of days to complete a project Length of time to conduct an inspection OUTPUTS Number of training manuals produced Number of inspections completed Number of plans reviewed Number of emergency responses • Many managers judge their effectiveness by counting and tabulating these inputs, processes and outputs. • These are measurements of the process rather than the measurement of performance • They measure what was done, rather than the impact of the action. Without meaningful performance measures that directly link the impact of your actions to clear goals and objectives, it may be difficult, if not impossible, to provide a sound and supportable justification for the continued existence of your program or service Goals and Objectives: • It is imperative that there is a clearly stated goal and objective for every program, service, and activity. • Once the goals are clarified in a meaningful way, specific objectives can then be made to operationalize the program. • For example, the vague goal of improved fire safety can be made more meaningful and specific as follows: • "Increased number of working smoke alarms in the home" • With the goal specifically defined, it provides direction and guidance as to what objectives must be achieved in order to reach this goal. For example: Goal Increased number of working smoke alarms in the home Objectives Public awareness of the value of smoke alarms through media advertising Promotional campaign as part of Fire Prevention Week Provide quality smoke alarms to the public at a reduced price Measuring Performance • There is merit in linking the results of programs, services and activities to clearly defined objectives. • It is not sufficient that the goal be achieved; it is necessary to show that the activities of the program were responsible for the achievement of the goal by establishing cause and effect. • The key questions to determine the impact of actions are: Do you have the resources to achieve the goal? Why are you doing this? Are you achieving what you are supposed to be doing? How do you know? " • Managers must develop meaningful performance measures and report on their success by measuring performance. • Decisions on program direction can then be made based on this information What are Performance Measures? • The quantitative and qualitative measures which assess the effectiveness and efficiency of a product, service or process • They are the key indicators of success. • Performance measures generally fall into six primary categories: • Time • Effectiveness • Quality • Efficiency • Costs and • Productivity Safety To clarify these six categories of performance measures, each is defined on the following page. Time : • Time it takes to complete a process (cycle time) or deliver a service or product • Effectiveness: Doing the right things, meeting corporate objectives and strategic directions • Quality: A measure of the extent to which a thing or experience (service) meets a need, solves a problem or adds value for someone (client, stakeholder, taxpayer) • Efficiency: Outputs relative to inputs; doing things right every time • Costs & Productivity: Cost to provide a product or service; the relationships among costs, inputs and outputs • Safety: The extent to which important assets (personnel, property, records) are safeguarded so that the organization is protected from danger of losses that could threaten its success, credibility, continuity, etc. Why Why do you use performance measures? • To demonstrate success • To identify problems • To evaluate goal achievement • To determine whether or not there is performance improvement Codes, Standards and Best Practices Codes, Standards and Best Practices available to assist in establishing local policy on the delivery of this service are listed below. All are available at http://www.mcscs.ius.gov.on.ca/ <http://www.mcscs.ius.gov.on.cal> . Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also 02-04-01 <.. /.. /.. /../english/firemarshal/fireservice resources /publigfiresafetyguidelines/02-04- Ol.html> & 23 <.. /.. /.. /../english/firemarshal/fireserviceresources/publi�resafetyauide lines /02-04- 23.html> Capabilities of Existing Fire Protection Services 02-03-01 <.. /.. /.. /../english/firemarshal/fireservice resources /publigfiresafetyauidelines/02-03- 01.html> Economic Circumstances 02-02-12 <.. /.. /.. /../english/firemarshal/fireservice resources /publicfiresafetyauidelines/02-02- 12.html> & 03 <.. /.. /.. /../english/firemarshal/fireserviceresources/publicfiresafetyouidelines/02-02- 03.html> Fire Risk Assessment 03-01-13 <.. A. A. A. /english/firemarshal/fireserviceresources/yublicfiresafety4uidelines/03-01- 13.html> Preparation of Draft Report 04-39-12 <.. A- A- A. /enolish/firemarshal/fireserviceresources /uublicfiresafety4uidelines/04-39- 12.html> Fire Prevention Effectiveness Model APPENDIX F PFSG 02-03-01 "Economic Circumstances" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Economic Circumstances Public Fire Safety Guidelines Section General Subject Economic Circumstances Purpose Subject Coding PFSG 02-03-01 Date January 1998 Page To identify considerations for analyzing municipal economic circumstances. Introduction Elected officials are responsible for the economic well-being of the community, and measure this in a number of ways. One such way would be with a balanced budget containing no tax increases. This does not necessarily give a complete or clear picture of the community's economic circumstances. For many years various budgetary systems, approaches, and formats have been developed in the continuing quest for political objectivity by elected officials. By the very nature of democracy, which is based on representative elections and the "politics" associated with them, mitigates against objectivity in the usual sense. Such budgeting and/or financial planning could be therefore defined as a rational decision making system working within a less than rational political process. It is therefore essential that the economic circumstances of a community be thoroughly and objectively analyzed, in addition to the assessment of the existing fire protection system, and risk assessment, if an accurate representation is to be made of the community. Economic Considerations Factors to be considered in assessing the local economic circumstances, include the following: • assessment: • residential/farm • industrial • institutional • business/commercial • increases (decreases) in past 5 and 10 years • tax rates : • show local and regional/county purposes 5 and 10 year history of increases (decreases) • urban and rural service areas, if any • municipal debt • revenues • reserve funds • other monetary assets such as development charge accounts • total fire protection system costs • per capita basis • assessment basis • per household • employment, unemployment conditions • relationship of all of the above in the general area of the local community • affect on the ability of the municipal tax base to fund appropriate fire protection services • relationship of all of the above with similar communities • past and present political philosophy respecting • budget increases/decreases • pay as you go • debenturing/borrowing service (budget reductions) necessitated by reduced revenues • loss impact of single employer, major industry, institution • barriers to rebuilding, such as zoning and environmental requirements Related Functions: • Fire Risk Assessment <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/02-02- O3.html> • Capabilities of Existing Fire Protection Services <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/02-02- O3.html> Codes, Standards, Best Practices: Codes, Standards, and Best Practices resources available to assist in establishing local policy on this assessment are listed below. All are available at www.ontario.ca/firemarshal <http://www.ontario.calfiremarshal> . Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also PFSG 02-04-01 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/02-04- 01.html> & 23 <.. /.. /.. /.. /enolish/firemarshal/fireserviceresources/yublicfiresafetyauidelines/02-04- 23.html> Capabilities of existing Fire Protection Services 02-02-12 <.. /.. /.. /.. /english/firemarshal/fireservice resources /publitfiresafetyauidelines/02-02- 12.html> & 03 <.. /.. /.. /.. /enolish/firemarshal/fireservice resources /publitfiresafetyuuidelines/02-02- 03.html> Risk Assessment APPENDIX G PFSG 02-02-03 "Fire Risk Assessment" Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Fire Risk Assessment Public Fire Safety Guidelines Section General Subject Fire Risk Assessment Purpose: Subject Coding PFSG 02-02-03 Date January 1998 Page To identify considerations for persons conducting municipal fire risk assessments. Ambient Factors of Risk Assessment: The following factors should be considered in assessing the local fire risk. • the municipality: • urban • ru ra I • metropolitan • other, such as a bedroom community, border community • predominantly dependent upon a single employer, business, or institutional operation or activity • describe its uniqueness • describe its geography • describe its demographics outline current development and development trends • describe street network and traffic patterns • describe traffic barriers • consider applicable by-laws • labour relations climate and history • historical • indicate emergency call volume last year, last 5 years • the number of fire casualties in the past year, past 5 years • identify any trends respecting cause and location • the fire loss for the past year, past 5 years • indicate trends respecting call types for the past 5 years • comparisons with other like municipalities should be considered for the following factors: • population (static/subject to seasonal or other fluctuations) • geographical area and size of municipality • type of municipality • number of residential dwellings • assessment • development trends • growth history and trends • demographics • equalized assessment and tax base ■ residential/farming vs industrial/commercial assessment • building stock • identify, as accurately as possible, the number and percentage of the following: ■ single family residences ■ multi -unit residences ■ high-rise buildings ■ large complexes ■ farms/agricultural buildings ■ commercial buildings ■ industrial buildings ■ institutional ■ business buildings ■ storage facilities ■ other special buildings ■ hospitals ■ nursing homes ■ with respect to building type, identify specific problems, such as access, density and age ■ with respect to building type, identify significant and associated outside storage areas • building occupancies • identify, as accurately as possible, the number and percentage of the following occupancies: ■ assembly ■ institutional ■ residential ■ commercial ■ industrial ■ business ■ storage ■ vacant ■ other • prevention and public education • if, for example, the municipality does not have a fire department, but purchases fire suppression services, describe what fire prevention and public education initiatives, if any, are undertaken by the community. Describe the significance and impact, or lack of same, of such initiatives. • public and political resolve • what is the perceived awareness of fire safety by the general public and the corporate sector? • what are the expectations for fire protection by the general public, and the corporate sector? • what is the general tone of press and media coverage of fire related matters? • how are fire prevention, fire safety, and public education programs generally received and accepted by the community at large? • what is the local political climate respecting: ■ cost cutting/no budget increases? ■ preserving the status quo? ■ maintaining/improving essential services such as the fire department? • public and private protection systems • independent of the assessment of (Analyzing Local Circumstances - Assessing Existing Fire Protection Services), identify and describe: ■ private fire brigades ■ industrial/commercial fire brigades ■ private water supplies and water supply systems Related Functions: Click on the related function below to view that function: • Economic Circumstances • Capabilities of Existing Fire Protection Services Codes, Standards, and Best Practices: Codes, Standards, and Best Practices resources available to assist in establishing local policy on this assessment are listed below. All are available at www.ontario.ca/firemarshal <http://www.ontario.calfiremarshal> . Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also PFSG 01-02-01 <.. /.. /.. /.. /enc►fish/firemarshal/fireserviceresources /yubligfiresafetyauidefines/01-02- 01.html> Comprehensive Fire Safety Effectiveness Model Considerations 02-04-01 <.. /.. /.. /../engfish/firemarshal/fireserviceresources /publicfiresafetyguidefines/02-04- Ol.html> & 23 <.. /.. /.. /../enclish/firemarshal/fireserviceresources/aublicfiresafety4uidelines/02-04- 23.html> Capabilities of Existing Fire Protection Services 04-39-12 <.. A. A. A./engfish/firemarshal/fireserviceresources /publicfiresafetyguidefines/04-39- 12.html> Fire Prevention Effectiveness Model APPENDIX H PFSG 02-04-01 "Capabilities of Existing fire Protection Services Ministry of Community Safety and Correctional Services Public Fire Safety Guidelines Capabilities of Existing Fire Protection Services Public Fire Safety Guidelines Section General Subject Capabilities of Existing fire Protection Services Purpose: Subject Coding PFSG 02-04-01 Date January 1998 Page To identify methods to accurately assess existing capabilities of available fire protection services. This section is a companion to Risk Assessment Analysis and Economic Circumstances Analysis, which are used to provide policy makers with a report on existing fire services. This is a fact finding exercise only and decisions, conclusions, judgments, recommendations, and options are not to be made at this stage, nor on the basis of this section only. Fire Department: Is the fire protection for the municipality provided by: • a fire department organized for the municipality? • an unorganized community? • a fire department jointly managed and operated with other municipality(ies)? • an agreement to purchase protection from another jurisdiction? • a combination of the above ? Factors Involved In Assessing The Fire Department: Regardless of how the fire protection is organized and delivered, the following factors must be considered in assessing the protection services; • mission statement and mandate • goals and objectives • organization • administration • by-laws and agreements • fire prevention, public information, public education • investigations • communications • emergency operations • training and education • vehicles and equipment • financial management and budgeting • automatic aid and "mutual aid" • building and facilities • pre -emergency planning • disaster planning • risk management planning • human resources • maintenance • records, reports, data • water supplies Related Functions: • Fire Risk Assessment <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/02-02- O3.html> • Economic Circumstances <.. /.. /.. /.. /enolish/firemarshal/fireserviceresources/publicfiresafetvauidelines/02-03- Ol.html> Codes, Standards, Best Practices: Codes, Standards, and Best Practices resources available to assist in establishing local policy on this assessment are listed below. All are available at www.ontario.ca/firemarshal <http://www.ontario.calfiremarshal> . Please feel free to copy and distribute this document. We ask that the document not be altered in any way, that the Office of the Fire Marshal be credited and that the documents be used for non-commercial purposes only. See also PFSG 02-03-01 <.. /.. /.. /.. /english/firemarshal/fireserviceresources /publicriresafetyuuidelines/02-03- Ol.html> Economic Circumstances 02-02-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources /publitfiresafety4uidelines/02-02- 12.html> & 03 <.. /.. /.. /.. /english/firemarshal/fireserviceresources /publicfiresafetyguidelines/02-02- O3.html> Fire Risk Assessment 04-39-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyguidelines/04-39- 12.html> Fire Prevention Effectiveness Model 04-61-12 <.. /.. /.. /.. /english/firemarshal/fireserviceresources/publicfiresafetyauidelines/04-61- 12.html> Human Resources Practices 04-64-12 <.. /.. /.. /.. /enolish/firemarshal/fireserviceresources/publicfiresafetyouidelines/04-64- 12.html> Communications/Resource Centre APPENDIX I Community Risk Profile Municipality of Clarington Fire Master Plan Appendix I Community Risk Profile February 2014 TABLE OF CONTENTS Page I1.0 COMMUNITY RISK PROFILE..............................................................................................1 11.1 Introduction.................................................................................................................... 1 I1.2 OFM Fire Risk Sub-Model............................................................................................. l I1.3 Assessing Fire Risk Scenarios........................................................................................2 Vulnerable Individuals or Occupancies.........................................................................17 I1.4 Property Stock................................................................................................................2 Language Barriers to Public Education......................................................................... 17 11.4.1 Community Risk Profile Major Occupancy Classifications .............................. 3 13.2.6 Past Fire Loss Profile Observations................................................................. 11.4.2 Assembly Occupancies (Group A)...................................................................... 3 32 11.4.3 Care and Detention Occupancies (Group B) ...................................................... 4 11.4.4 Residential Occupancies (Group C)................................................................... 4 11.4.5 Business and Personal Services Occupancies (Group D) .................................... 5 11.4.6 Mercantile Occupancies (Group E).................................................................... 5 11.4.7 High/Medium/Low Hazard Industrial Occupancies (Group F) ........................... 6 11.4.8 Other Occupancies/Uses not listed within the OBC (Not Classified) ................... 6 11.4.9 Property Stock Analysis..................................................................................... 6 Il. 4.10 Property Stock Profile Observations.................................................................. 7 I1.5 Building Height and Area............................................................................................... 8 11.5.1 Building Height.................................................................................................. 8 Il. 5.2 Building Area..................................................................................................... 9 Il. 5.3 Building Height and Area Observations............................................................. 9 I1.6 Building Age and Construction..................................................................................... 10 Il. 6.1 Building/Fire Code Application.......................................................................10 Il. 6.2 Residential Buildings.......................................................................................10 11.6.3 Non -Residential Buildings................................................................................ 12 Il. 6.4 Building Age and Construction Observations...................................................13 I1.7 Building Exposures...................................................................................................... 13 Il. 7.1 Building Exposures Observations..................................................................... 13 I2.0 DEMOGRAPHIC PROFILE.................................................................................................14 I2.1 Population Distribution by Age Group.......................................................................... 14 I2.2 Population Shifts.......................................................................................................... 16 I2.3 Vulnerable Individuals or Occupancies.........................................................................17 13.2.3 Reported Fire Cause........................................................................................ I2.4 Language Barriers to Public Education......................................................................... 17 I2.5 Income Levels..............................................................................................................18 13.2.6 Past Fire Loss Profile Observations................................................................. I2.6 Demographic Profile Observations...............................................................................19 32 I3.0 GEOGRAPHY / TOPOGRAPHY / ROAD INFRASTRUCTURE...................................20 I3.1 Geography/Topography/Road Infrastructure Profile Observations ................................. 28 I3.2 Past Fire Loss Statistics................................................................................................ 28 13.2.1 Fire Loss by Occupancy Classification............................................................. 28 13.2.2 Property Fire Loss........................................................................................... 29 13.2.3 Reported Fire Cause........................................................................................ 30 13.2.4 Reported Ignition Source................................................................................. 31 13.2.5 Reported Civilian Injuries and Fatalities.......................................................... 31 13.2.6 Past Fire Loss Profile Observations................................................................. 32 I3.3 Fuel Load Profile.......................................................................................................... 32 13.3.1 Fuel Load Profile Observations....................................................................... 34 Table of Contents Page I -i DILLON Municipality of Clarington Fire Master Plan Appendix I Community Risk Profile February 2014 I4.0 COMMUNITY GROWTH & DEVELOPMENT..................................................................35 15 I4.1 Historic Growth............................................................................................................35 Table I-7: Occupancies in Clarington..................................................................................................17 I4.2 Growth Projections....................................................................................................... 35 Table I-9: 2006 Statistics Canada Household Data..............................................................................18 14.2.1 Growth Projections Profile Observations......................................................... 36 I4.3 Risk Profile Model....................................................................................................... 36 Table I-12: Property Fire Loss (Dollars)................................................................................................ 14.3.1 Probability Levels............................................................................................ 37 30 14.3.2 Consequence Levels......................................................................................... 37 Table 1-15: Municipality of Clarington 2007 to 2011 Reported Civilian Injuries and Fire Deaths........... 14.3.3 Risk Levels....................................................................................................... 38 14.3.4 Ontario Fire Code Compliance........................................................................ 39 I4.4 Municipality of Clarington Risk Evaluation.................................................................. 40 37 14.4.1 Municipality of Clarington Risk Model............................................................. 43 14.4.2 Methodology....................................................................................................43 14.4.3 Existing Risk and Response (Call Locations).................................................... 44 14.4.4 Existing Risk and Response (Geography)......................................................... 44 14.4.5 Future Risk and Response (Geography)........................................................... 44 List of Tables Page Table I-1: OBC Major Occupancy Classifications................................................................................3 Table I-2: Property Stock Profile Municipality of Clarington................................................................. 7 Table I-3: Residential Structural Dwelling Type................................................................................. 11 TableI-4: Age of Construction............................................................................................................ 12 TableI-5: Age Group.......................................................................................................................... 15 Table I-6: Provincial % of Fire Fatalities by Age Group......................................................................16 Table I-7: Occupancies in Clarington..................................................................................................17 Table I-8: Knowledge of Official Languages.......................................................................................18 Table I-9: 2006 Statistics Canada Household Data..............................................................................18 Table I-10: Provincial Fire Loss by Occupancy Classification Period 2007 to 2011 ............................... 28 Table I-11: Municipality of Clarington Fire Loss by Property Classification Period 2007 to 2011.......... 29 Table I-12: Property Fire Loss (Dollars)................................................................................................ 30 Table 1-13: Municipality of Clarington 2007 to 2011 Reported Fire Cause ............................................ 30 Table 1-14: Municipality of Clarington 2007 to 2011 Ignition Source Class ........................................... 31 Table 1-15: Municipality of Clarington 2007 to 2011 Reported Civilian Injuries and Fire Deaths........... 32 Table I-16: Clarington Fuel Load Profile...............................................................................................33 Table I-17: Historic Growth in Population and Households................................................................... 35 Table I-18: Population and Employment Growth Projections................................................................ 35 Table 1-19: OFM Fire Risk Sub -model Likelihood Levels (Probability) ................................................ 37 Table of Contents Page I -ii DILLON Municipality of Clarington Fire Master Plan Appendix I Community Risk Profile February 2014 Table I-20: OFM Fire Risk Sub -model Consequence Levels Table I-21: OFM Fire Risk Sub -model Risk Levels ............. Table I-22: Risk Evaluation Summary ................................ Table I-23: Base Risk Zone Category by Occupancy........... List of Figures Figure I-1: Existing Land Use — Clarke Rural Area ............................ Figure I-2: Existing Land Use — Darlington Rural ............................... Figure I-3: Existing Land Use — Courtice Urban ................................. Figure I-4: Existing Land Use — Bowmanville Urban Area .................. Figure 1-5: Existing Land Use — Newcastle Village Urban Area .......... Figure I-6: Existing Land Use — Orono Urban Area ............................. Figure I-7: Existing Transportation Network ...................................... Figure 1-8: Existing Risk and Response Historical Fire Call Locations Figure 1-9: Existing Urban Risk and Response (Geography) ................ Figure I-10: Existing Rural Risk and Response (Geography) ................. Figure I-11: Future Urban Risk and Response (Geography) ................... Figure 1-12: Future Rural Risk and Response (Geography) .................... Table of Contents Page I -iii .. 38 .. 39 .. 42 .. 43 DILLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I1.0 COMMUNITY RISK PROFILE I1.1 Introduction The Office of the Fire Marshal, Ontario (OFM) provides a number of tools to assist municipalities, and ultimately municipal councils, in determining local needs and circumstances as required by the FPPA. These tools include the Comprehensive Fire Safety Effectiveness Model; the Fire Risk Sub -Model and Public Fire Safety Guideline 01-01-01 "Fire Protection Review Process ". PFSG 01-01-01 "Fire Protection Review Process" further identifies the three primary components of assessing community needs and circumstances including: ✓ Assessing Economic Circumstances from a Fire Protection Perspective (PFSG 02-03-0) ✓ Assessing Fire Risk (PFSG 02-02-12) ✓ Assessing the Existing Fire Protection Services (PFSG 02-04-01) This section provides a detailed assessment of the current and future (planned growth) fire risk within the Municipality of Clarington. I1.2 OFM Fire Risk Sub -Model The community fire risk analyses within this report follow the OFM framework and specifically the OFM Fire Risk Sub -Model. The model identifies the importance of community risk in the following introductory paragraphs: "Assessing the fire risk within a community is one of the seven components that comprise the Comprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing the relevant factors that characterize the community and applying this information to identify potential fire risk scenarios that may be encountered. The assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences." "The types of fire risks that a community may be expected to encounter are influenced by its defining characteristics. For example, a "bedroom community" presents a different set of circumstances over one that is characterized as an "industrial town". Communities that are distinguished by older buildings will pose a different set of concerns over those that are comprised of newer buildings constructed to modern building codes. Communities populated by a high percentage of senior citizens present a different challenge over ones with a younger population base. Assessing fire risk should begin with a review of all available and relevant information that defines and characterizes your community. Eight key factors have been identified that contribute to the community's inherent characteristics and circumstances. These factors influence events that shape potential fire scenarios along with the severity of their outcomes: • Property Stock • Building Height and Area • Building Age and Construction • Building Exposures Community Risk Profile Page — I-1 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 • Demographic Profile • Geography/Topography/Road Infrastructure • Past Fire Loss Statistics • Fuel Load Using the framework provided within the OFM's Fire Risk Sub -model the potential fire risk scenarios present within the community can be assessed by creating a Community Fire Risk Profile. The profile can then be applied to assess the current level of fire protection services provided, and identify where if any potential gaps exist, or identify areas that a municipal Council may want to consider in determining its own `needs and circumstances', as defined by the Fire Protection and Prevention Act (FPPA). I1.3 Assessing Fire Risk Scenarios The Fire Risk Sub -Model provides communities with the flexibility to determine how their municipality should be defined in terms of fire risk scenarios. Specifically, the model states that: For analyses purposes, the community being assessed can be defined as the municipality in its entirety or as a particular segment of it that distinguishes it from other parts. For smaller municipalities, it may be sufficient to simply define the community based on town boundaries. For larger municipalities, it may be appropriate to subdivide it into separate and distinct components to permit more detailed analysis. For example, it may be convenient to subdivide a municipality based on residential subdivision, downtown sections, industrial park, and a rural area. Hence, the first step in conducting a fire risk analyses is to identify and define the community (s) being analyzed". The analyses within this Fire Master Plan utilize the major occupancy classifications of the Ontario Building Code (OBC) to define the fire risk scenarios within the Municipality of Clarington. I1.4 Property Stock The Ontario Building Code (OBC) categorizes buildings as defined by their major occupancy classifications. Each classification has inherent definitions that distinguish it from other occupancy classifications. Utilizing the OBC as the source for defining the occupancy classifications provides a recognized definition and baseline for developing the Community Risk Profile. The OBC major occupancy classifications are divided into six major building occupancy classifications (Groups), within each group the occupancies are furthered defined by (Division). The OBC major classification groups and divisions are presented in Table I-1. Community Risk Profile Page — I-2 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 11.4.1 Community Risk Profile —Major Occupancy Classifications The Fire Risk Sub -model developed by the Office of the Fire Marshal utilizes the major group classifications only (Group A, B, C, D, E, F). The Fire Risk Sub -model does not use the detailed "Division" classifications provided for the respective occupancy groups. This strategy provides the ability to assess property stock within a community comparatively by major occupancy groups thus providing a consistent and recognised definition for each major occupancy type. Where necessary, this strategy provides the opportunity for further analysis of a specific occupancy group for example a Group F Industrial, that is a Division 1 - High hazard industrial occupancy. Subject to any site specific hazards or concerns individual occupancies within this group can be assessed individually and then included where required within the scope of the broader community risk profile. The Fire Risk Sub -model utilizes the following major occupancy classifications. 11.4.2 Assembly Occupancies (Group A) Assembly occupancies are defined by the OBC as the "occupancy or the use of a building or part of a building by a gathering of persons for civic, political, travel, religious, social, educational, recreational or similar purposes or for the consumption of food or drink". Risks within these occupancies can include: • overcrowding by patrons • lack of patron familiarity with emergency exit locations and procedures • staff training in emergency procedures • large quantities of combustible furnishings and decorations Community Risk Profile Page — I-3 DILLON CONSULTING Table I-1: OBC Major Occupancy Classifications Group Division Description of Major Occupancies Group A 1 Assembly occupancies intended for the production and viewing of the performing arts Group A 2 Assembly occupancies not elsewhere classified in Group A Group A 3 Assembly occupancies of the arena type Group A 4 Assembly occupancies in which occupants are gathered in the open air Group B 1 Detention occupancies Group B 2 Care and treatment occupancies Group B 3 Care occupancies Group C --- Residential occupancies Group D --- Business and personal services occupancies Group E --- Mercantile occupancies Group F 1 High hazard industrial occupancies Group F 2 Medium hazard industrial occupancies Group F 3 JLow hazard industrial occupancies 11.4.1 Community Risk Profile —Major Occupancy Classifications The Fire Risk Sub -model developed by the Office of the Fire Marshal utilizes the major group classifications only (Group A, B, C, D, E, F). The Fire Risk Sub -model does not use the detailed "Division" classifications provided for the respective occupancy groups. This strategy provides the ability to assess property stock within a community comparatively by major occupancy groups thus providing a consistent and recognised definition for each major occupancy type. Where necessary, this strategy provides the opportunity for further analysis of a specific occupancy group for example a Group F Industrial, that is a Division 1 - High hazard industrial occupancy. Subject to any site specific hazards or concerns individual occupancies within this group can be assessed individually and then included where required within the scope of the broader community risk profile. The Fire Risk Sub -model utilizes the following major occupancy classifications. 11.4.2 Assembly Occupancies (Group A) Assembly occupancies are defined by the OBC as the "occupancy or the use of a building or part of a building by a gathering of persons for civic, political, travel, religious, social, educational, recreational or similar purposes or for the consumption of food or drink". Risks within these occupancies can include: • overcrowding by patrons • lack of patron familiarity with emergency exit locations and procedures • staff training in emergency procedures • large quantities of combustible furnishings and decorations Community Risk Profile Page — I-3 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Proactive measures for reducing risks can include: ✓ regular fire prevention inspection cycles ✓ automatic fire detection and monitoring systems ✓ approved Fire Safety Plan and staff training ✓ pre planning by fire suppression staff 11.4.3 Care and Detention Occupancies (Group B) A care or detention occupancy means the occupancy or use of a building or part thereof by persons who; (a) are dependent on others to release security devices to permit exit, (b) receive special care and treatment, or (c) receive supervisory care. Risks within these occupancies can include: • ability to evacuate or relocate patients • presence of flammable%ombustible gases • vulnerable occupants • combustible furnishings Proactive measures for reducing risks can include: ✓ regular fire prevention inspection cycles ✓ automatic fire detection and monitoring systems ✓ approved Fire Safety Plan and staff training ✓ pre planning by fire suppression staff 11.4.4 Residential Occupancies (Group C) A residential occupancy is defined as one that is used by persons for whom sleeping accommodation is provided but who are not harboured or detained there to receive medical care or treatment or who are not involuntarily detained there. Within this occupancy classification both the Ontario Fire Code (OFC) and the Ontario Building Code classify residential low-rise buildings as up to and including six storeys in building height. Buildings in excess of six storeys are considered as high-rise buildings. Comparatively Statistics Canada defines low- rise buildings as being less than five storeys in building height and high-rise as five storeys and greater. Another example of a use within this occupancy group would be mobile homes or travel trailers. The common factor is overnight accommodation (sleeping) when an occupant can be at the highest risk. As the primary source for data regarding community risk factors is provided by Statistics Canada this analysis utilizes the Statistics Canada definitions for residential occupancies. Risks within these occupancies can include: • overnight accommodation (sleeping) • combustible furnishings • secondary units (basement apartments) • high density • human behavior (cooking, use of candles, etc.) Community Risk Profile Page — I-4 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Proactive measures for reducing risks can include: ✓ Smoke Alarm Program ✓ Public Education Programming including Home Escape Planning ✓ Retro -fit and compliance inspection cycles for OBC and OFC compliance ✓ Pre -planning by fire suppression staff 11.4.5 Business and Personal Services Occupancies (Group D) Business and personal services occupancies are defined as those that are used for the transaction of business or the provision of professional or personal services. These occupancies can be located within remodelled single family dwellings, low-rise and high-rise buildings. Each of these building types can present different risks including egress for firefighting operations and evacuation by occupants. Risks within these occupancies can include: • high volume of occupants • high combustible loading • specialized equipment utilizing high risk substances such as radiation • consumers unfamiliar with emergency exits and procedures Proactive measures for reducing risks can include: ✓ regular fire prevention inspection cycles ✓ staff training in fire prevention and evacuation ✓ public education ✓ pre planning by fire suppression staff 11.4.6 Mercantile Occupancies (Group E) This occupancy is defined as one that is used for the displaying or selling of retail goods, wares, and merchandise. These occupancies range in size and potential risk from smaller neighbourhood corner stores to the large "big box" industrial style buildings that survive on the sale of large volume. Large volumes of combustibles are typically present in all applications. Risks within these occupancies can include: • high volume of occupants/staff • high volume of combustible loading/high rack storage • lack of occupant familiarity with emergency exit locations and procedures • size of building Community Risk Profile Page — I -S DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Proactive measures for reducing risks can include: ✓ regular fire prevention inspection cycles ✓ automatic fire detection and monitoring systems ✓ approved Fire Safety Plan and staff training ✓ pre planning by fire suppression staff 11.4.7 High/Medium/Low Hazard Industrial Occupancies (Group F) Industrial occupancies are defined as those used for the assembly, fabrication, manufacturing, processing, repairing or storing of goods and materials. This category is divided into low hazard (F3), medium hazard (F2) and high hazard (F 1) based on its combustible content and potential for rapid fire growth. The potential for major fires within this occupancy type is related to the high levels of combustibles that are present in storage and utilized in the manufacturing process. This can include highly flammable and corrosive products. Risks within these occupancies can include: • large dollar loss as a result of a major fire • economic loss in the event of plant shut downs and job loss • environmental impacts • presence of ignition sources related to processing activities Proactive measures for reducing risks can include: ✓ regular fire prevention inspection cycles ✓ staff training in fire prevention and evacuation ✓ public education ✓ pre planning by fire suppression staff ✓ installation of early detection systems (smoke alarms, heat detectors) ✓ installation of automatic sprinkler systems 11.4.8 Other Occupancies/Uses not listed within the OBC (Not Classified) There are other occupancies and uses not included within the OBC major building occupancy classifications that should be considered as part of developing the Community Risk Profile. These include occupancies that may be regulated under other legislation such as Federal owned facilities. Examples of these include: • major railway lines • major highways and transportation corridors • airports • outdoor tire storage facilities • farm buildings 11.4.9 Property Stock Analysis Utilizing the property stock classifications contained within the Fire Risk Sub -model Table I-2 provides a summary of the property stock within the Municipality of Clarington. Community Risk Profile Page — I-6 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-2: Property Stock Profile Municipality of Clarington Occupancy Classification (OBC) Occupancy Definition Fire Risk Sub -model (OFM) Number of Occupancies Percentage of Occupancies Group A — Assembly Assembly occupancies 239 0.8% Group B - Institutional Care or Detention occupancies 16 0% Group C - Residential Residential occupancies 29,801 97.0% Group D - Business Business and Personal Services 172 0.6% Group E - Mercantile Mercantile occupancies 198 0.6% Group F - Industrial Industrial occupancies 305 1.0% Other occupancies Not classified within the Ontario Building Code (i.e. farm buildings) N/A N/A Totals 30,731 100% The vast majority (97.0%) of the Municipality of Clarington property stock is Group C residential. This particular analysis confirms that the Municipality of Clarington is a popular residential community for commuters working in other large urban centres in the Greater Toronto Area (GTA). Specifically, as stated in the Municipality of Clarington Community Profile, approximately 70% of Clarington residents work outside of Clarington, which is largely a result of affordable housing found in Clarington. There are also a small number of very large industrial operations in the Municipality that employ large numbers of people, but only count as one occupancy in the above table (i.e. Darlington Nuclear Generating Station and Lakeridge Health Bowmanville). The northern half of Clarington is mainly rural farm land located in either the Greenbelt Protected Land or the Oak Ridges Moraine. Farm buildings (not classified within the OBC) vary in size and use from small utility sheds to large livestock barns. Residential occupancies include both commercial/residential mixed used buildings located within the urban areas, a number of low-rise apartment buildings with a small number of high-rise apartment buildings, several seasonal dwellings including mobile homes, bed and breakfasts, extended care facilities, and a mix of typical single family dwellings. 11.4.10 Property Stock Profile Observations The analysis of the Property Stock Profile for the Municipality of Clarington confirms that the largest percentage of major occupancies (97.0%) is "Group C" residential. Significant priority should be given to developing Fire Master Plan that reflects the risks associated with this occupancy category. A key element in mitigating residential risks is maximizing the use of all three lines of defense. Community Risk Profile Page — I-7 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 The priority of addressing the residential fire risk is supported by the historic data' provided by the Office of the Fire Marshal, Ontario that reports for the period from 2007 to 2011 residential fires accounted for 71% of all structure fire losses and for the period from 2001 to 2010 residential fires accounted for 86% of all fire fatalities. The Property Stock Profile confirms that the Municipality consists of primarily residential occupancies. All other occupancies only account for 3.0% of the property stock in Clarington. However, they include some large employers such as Ontario Power Generation, the Municipality of Clarington, Lakeridge Health Bowmanville and St. Marys Cement. I1.5 Building Height and Area Buildings that are taller in height, or contain a large amount of square footage (footprint) can have a greater fire loss risk and life safety concern. 11.5.1 Building Height One of the unique characteristics and risks of tall / multi-storey buildings is known as the "stack effect". This is characterized as vertical air movement occurring throughout the building, caused by air flowing into and out of the building typically through open doors and windows. The resulting buoyancy caused by the differences between the indoor/outdoor temperature and elevation differences causes smoke and heat to rise within the building. This can have a dramatic effect on smoke permeation throughout the common areas and individual units within the building. This can be directly related to the high percentage of deaths that occur in high-rise buildings as a result of smoke inhalation. The nature of taller buildings also brings the presence of higher occupant loads and higher fuel loads due to the quantity of furnishings and building materials. Efficient evacuation can also be a challenging process due to a lack of direction / signage and knowledge / familiarity of the occupants which may result in overcrowding of stairways and exit routes. There are very few residential high-rise buildings (5 or more storeys) within the Municipality, located predominantly in the urban areas of Bowmanville, Courtice, Newcastle Village and Orono. In many cases these buildings are occupied by a demographic that is more susceptible to fire risks such as seniors or new Canadians. The units within these high-rise buildings, while independently may produce the same hazards/concerns that a single family dwelling does, do have unique characteristics that require additional consideration. For example, exiting becomes more complicated when dealing with multi -dwelling buildings, not only for occupants but firefighters and other emergency response personnel as well. Items such as fire alarm systems, water supply systems and emergency lighting that are the responsibility of the owner require inspections by qualified staff to ensure that compliance is being maintained. 'Sources, OFM website: htti)://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/F atatFiresSummary/stats_ fatal_summgr. http://www.mcscs.jus. gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatisticsIOntarioFiresIFireL ossesCausesTrendslssues/stats causes.html Community Risk Profile Page — I-8 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Ensuring all required life safety systems are in place and functioning is a priority for these occupancies. Taller buildings can experience extended rescue / suppression response times for firefighters to ascend to the upper levels. Options such as "shelter -in-place" whereby occupants are directed by the fire department to stay within their units can be an effective strategy. However, ensuring internal building communications systems are in place and functioning is critical to the success of this strategy. 11.5.2 Building Area In contrast to building height, building area can cause similar challenges as those present in taller buildings. Horizontal travel distances rather than vertical can mean extended response times by firefighters attempting rescue or fire suppression activities. Large buildings such as industrial plants and warehouses, department stores, and the new "big box" stores can contain large volumes of combustible materials. In many of these occupancies the use of high rack storage is also present. Fires within this type of storage system can be difficult to access and cause additional risk to firefighter safety due to collapse. The Municipality has a small number of large industrial and commercial buildings. For example, the Courtice Flea Market shopping mall located at 1696 Bloor Street in Courtice is a large facility that sits on 12 acres, however the contents of the buildings are considered to be low hazard in terms of a combustible load. Other examples of buildings with large areas and potential fire loss risk include: • Darlington Nuclear Generating Station (large building area and high occupancy); and, Lakeridge Health Bowmanville (large area, immobile occupants, unfamiliarity with emergency procedures). Additionally, major infrastructure projects have been proposed in the Municipality which will include construction of large buildings, such as the Darlington Energy Complex and an expansion to the Darlington Nuclear Station. The Darlington Energy Complex is currently being constructed and is a multi-purpose building of more than 300,000 square feet, including office space, a public information centre, an auditorium, employee processing centre and a warehouse, which will contribute to the overall building area within Clarington. The Municipality also has a historic downtown core located in Bowmanville consisting of multi -unit buildings containing mixed-use occupancies as defined by the OBC. Many of these include residential units above commercial stores located on the ground floor. In terms of building height these buildings would not be considered higher risk; however, in terms of area these buildings cover relatively large areas (square footage). 11.5.3 Building Height and Area Observations The analysis of the buildings within the Municipality in regards to height and area represent a very small number of buildings in excess of five storeys. These buildings can pose a high risk due to the occupants, exit efficiencies and stack effect. This includes all occupancy classifications but is mostly residential. There are also a limited number of large (by square footage) buildings throughout the Municipality. Downtown core buildings in addition to their large coverage area represent a potentially significant fire loss risk and life safety risk due to the presence of residential occupancies above many of the commercial occupancies. The observations of this section are consistent with the need to prioritize a pro -active fire inspection and compliance program. These strategies should be aligned with optimization of the first two lines of defence with the Fire Master Plan. Community Risk Profile Page — I-9 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I1.6 Building Age and Construction The Municipality of Clarington is a compilation of three urban areas, one village, and fourteen hamlets surrounded by farmlands and rural areas. The Municipality historically was known as a farming and rural - based community and was first settled in the late 1790s. It has since then diversified into a municipality with a diverse mix of urban and rural settings. There are many heritage properties located throughout the Municipality and many of the older buildings have historic ties to this era. As the Municipality has grown, a large majority of new construction has occurred within the urban centres of Bowmanville and Courtice, including both commercial and residential growth. Residential development has been mainly in the form of low density housing. A number of old buildings that have been renovated over the years have been changed without the required permits and follow-up inspections that would ensure compliance with both building and fire codes. There is the potential for these buildings to have inadequate interior fire separations and improper fire separations between adjoining buildings. 11.6.1 Building/Fire Code Application The Ontario Building Code (OBC) was adopted in 1975. The Ontario Fire Code (OFC) was similarly adopted in 1981. Together these two documents have provided the foundation for eliminating many of the inconsistencies in building construction and maintenance that were present before their adoption. The OBC and the OFC were developed to ensure uniform building construction and maintenance standards are applied for all new building construction. The codes also provide for specific fire safety measures depending on the use of the building. Examples of the fire safety issues that are addressed include: • Occupancy • Exits/means of egress including signs and lighting • Fire alarm and detection equipment • Fire department access • Inspection, testing, and maintenance In 1983 the OFC was further expanded to include retrofit requirements for many of the building constructed prior to adoption of the code. Retrofit requirements were established to ensure a minimum acceptable level of life safety is present. A number of occupancy types are included within the retrofit requirements including assembly, boarding, lodging and rooming houses, health care facilities, multi -unit residential, two -unit residential, and hotels. 11.6.2 Residential Buildings The priority of addressing the residential fire risk is supported by the historic data provided by the Office of the Fire Marshal, Ontario that reports2 for the period from 2007 to 2011 residential fires accounted for 71% of all structure fire losses and for the period from 2002 to 2012 residential fires accounted for 85% of all fire fatalities. 2 Source, OFM website: htti)://www.mcscs.jus. gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/F atalFiresSummary/stats_ fatal_summar..html http://www.mcscs.jus. gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatisticsIOntarioFiresIFireL ossesCausesTrendslssues/stats causes.html Community Risk Profile Page -1-10 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 These facts make understanding the age and construction of a community's residential building stock an important component of developing a Community Risk Profile. The Municipality of Clarington's residential building structural dwelling types are summarized in Table I-3. Table I-3: Residential Structural Dwelling Type Structural Dwelling Type Municipality of Clarington 3 % of Units Ontario o Uo Units i Single -Detached House 23,690 79.3% 2,718,880 55.6 Semi -Detached House 935 3.1% 279,470 5.7 Row House 2,355 7.9% 415,230 8.5 Apartment -Duplex 730 2.4% 160,460 3.3 Apartment -more than 5 Storeys 250 0.8% 789,975 16.2 Apartment -less than 5 Storeys 1,795 6.0% 498,160 10.2 Other single -attached House 35 0.1% 9,535 0.2 Movable Dwelling 75 0.3% 15,795 0.3 Total 29,865 100 4,887,510 100 In comparison to the provincial data, the Municipality of Clarington percentage of single -detached housing of 79.3% represents a significantly larger component of the residential dwelling types than that of the province at 55.6%. Row housing is the second highest percentage of residential dwellings at 7.9%. Historical data provided by the Office of the Fire Marshal indicates that fires in single -detached dwellings are responsible for nearly two thirds of all residential fires. The data further indicates that detached homes generally account for 80% of all single-family dwelling fires, with semi-detached and attached homes evenly contributing the remaining 20%. The Municipality of Clarington's residential buildings age are summarized in Table I-4. 3 Source: Statistics Canada - 2011 Census Data 4 Source: Statistics Canada - 2011 Census Data Community Risk Profile Page — I41 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-4: Age of Construction Period of Construction Municipality of Clarington % of Units Ontario % of Units Prior to 1946 6,065 10.4 677,875 14.9 1946 to 1960 10,385 7.8 690,155 15.2 1961 to 1970 9,865 6.8 640,660 14.0 1971 to 1980 12,140 10.3 776,745 17.0 1981 to 1985 3,925 5.6 338,575 7.4 1986 to 1990 4,310 18.0 410,160 9.0 1991 to 1995 2,365 12.7 291,480 6.4 1996 to 2000 2,465 13.0 312,215 6.9 2001 to 2006 3,395 15.4 417,165 9.2 Total 26,850 100 4,554,255 100 An important component of this analysis is the percentage of residential buildings built prior to the adoption of the Ontario Fire Code in 1981. Table I-4 indicates that 35.3% of the Municipality's residential buildings were built prior to 1981 in comparison to 61.1% of those in Ontario. In relation to the OFC, the Municipality has a relatively newer percentage of residential dwelling buildings than that of the province. 11.6.3 Non -Residential Buildings During the late 19"' century and early 20the century's balloon frame construction was a common framing technique used in both residential and small commercial construction. This technique permitted the spread of fire and smoke to move rapidly from the lower floors to upper floors and the roof level. Understanding the age of construction of dwellings can assist in determining if balloon framing may have been utilised. Modern construction techniques have introduced the use of platform construction whereby each level is built as a component of the overall structure. This technique in addition to the use of fire stops has reduced the extension of fire and smoke by creating horizontal barriers. Specific information such as the census data is not available for non-residential buildings; however the experience of community planning and development provides a relative comparison when assessing the age and construction of a community. Tours of the community and discussions with Municipal staff indicate that a portion of the non-residential buildings also pre -date the OFC adoption in 1981. Community Risk Profile Page — I-12 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 11.6.4 Building Age and Construction Observations As a community, the current building stock of the Municipality of Clarington is representative of a small urban settlement area that has grown over the past century to the current mixed use urban/rural community. Residential single -detached housing units represent 79.3% of the 29,865 residential dwelling structures. Although the majority of new residential building stock is comprised of newer construction technology including flame retardant materials and construction techniques, there are still 35.3% of the Municipality's residential buildings that were built prior to 1981 which represent the highest fire loss risk due to age and construction. I1.7 Building Exposures Closely spaced buildings, typical of historic downtown core areas, and newer infill construction, have a higher risk of a fire propagating (fire spreading to an adjacent exposed building). A fire originating in one building could easily be transferred to neighbouring structures due to the close proximity. The close proximity of buildings can also impede firefighting operations due to the limited access for firefighters and equipment. Adoption of the OBC and the OFC has required spatial separations and the use of fire retardant materials and constructions methods to reduce the fire risks. In addition to the construction and planning requirements within the respective codes, basic firefighting practices consider the protection of exposures as a primary function and consideration in the event of a response by the fire department. 11.7.1 Building Exposures Observations The risk of exposures as a result of a fire can occur in incidents involving buildings that are in compliance with current OBC and OFC requirements as well as those that may have been constructed prior to these public safety initiatives. As the majority of the building stock within the Municipality has been constructed utilizing the applicable code requirements, the probability of a fire spreading to involve other exposures is limited. The older buildings throughout the Municipality present the most significant risk for fire spread both internally and to adjacent buildings due to the close proximity and combustible construction of many of these buildings. Community Risk Profile Page — I-13 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I2.0 DEMOGRAPHIC PROFILE In terms of demographic profile with regard to developing a community risk profile it is important to understand a number of key factors related to residents of the community. Assessing these factors in relation to provincial statistics is an effective tool in understanding where there may be vulnerable groups in terms of fire or life risk, or barriers such as language that could affect communication of public education programs. The key factors within the demographic profile include: • Population Distribution by Age Group • Population Shifts • Vulnerable Individuals or Occupancies • Language Barriers to Public Education • Income level I2.1 Population Distribution by Age Group Within Canada our aging population has been recognised as one of the most significant demographic trends. Based on current data it is predicted that by the year 2026, one in every five Canadians will have reached the age 65. Seniors, those 65 and above represent one of the highest fire risk target groups in Ontario. Information provided by the Office of the Fire Marshal indicates that "between 2000 and 2004 the leading cause of senior (aged 65 and over) fire deaths were attributed to "open flame tools/smoker's articles " and "cooking equipment". These ignition sources were responsible for 35% and 10% respectfully of fire deaths for this age category during this period. It is believed that the decline in cognitive and physical abilities contributes to the frequency of fire incidents relating to careless use of these ignition sources ". Identifying a community's population by age category is a core component of developing the Community Risk Profile and identifying specific measures that may be required to mitigate risks associated with a specific age group such as seniors. Table I-5 provides a comparison of the Municipality's population by age group to that of the provincial statistics according to the 2011 census from Statistics Canada. Demographic Profile Page -1-14 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-5: Age Groups Age Characteristics of the Population Clarington Ontario Total IN, Total Total % Total Total population 84,548 - 12,851,820 - 0 to 4 years 4,845 5.7% 704,260 5.5% 5 to 9 years 5,260 6.2% 712,755 5.5% 10 to 14 years 6,045 7.1% 763,755 5.9% 15 to 19 years 6,945 8.2% 863,635 6.7% 20 to 24 years 5,100 6.0% 852,910 6.6% 25 to 44 years 22,145 26.2% 3,383,895 26.3% 45 to 54 years 14,700 17.4% 2,062,020 16.0% 55 to 64 years 9,355 11.1% 1,630,275 12.7% 65 to 74 years 5,725 6.8% 1,004,265 7.8% 75 to 84 years 3,240 3.9% 627,660 4.9% 85 years and over 1,185 1.4% 246,400 1.9% Median age of the population 38.6 - 40.0 - Population aged 14 and under 16,150 19% 2,180,770 17.0% Population aged 65 and over 10,150 12.1% 1,878,325 14.6% Statistics Canada, Census Data (2011) This comparison indicates that the age characteristics of the population within the Municipality are very consistent with that of the Province. This is particularly important when comparing the number of deaths as a result of a fire. Table I-6 below was prepared utilizing information from the Office of the Fire Marshal's review of Ontario Fatal Fire during the ten year period from 2001 to 2010 (revised October 2011). Although no particular age group stands out as a significantly higher risk, when the number of fatalities per million population is calculated, the seniors age group (65 and above) are at the greatest risk of fire death compared to other age groups. 5 Source: Statistics Canada - 2011 Census Data Demographic Profile Page -1-15 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-6: Provincial % of Fire Fatalities by Age Group Age Characteristics of the Population IN, of Age Group 0 to 10 years 8% 10 to 19 years 6% 20 to 29 years 6% 30 to 39 years 10% 40 to 49 years 19% 50 to 59 years 14% 60 to 69 years 12% 70 to 79 years 13% 80+ years 12% As indicated by the Provincial data, seniors tend to be more at risk. In comparison, the senior's population of the Municipality of Clarington as a percentage of the overall population is similar to that of the provincial data. I2.2 Population Shifts The population within a community can shift at various times during the day or week and throughout the year. This can be as a result of residents that are required to leave the community to seek employment as opposed to those having employment opportunities within the community. Other examples can include tourist and vacation destinations within a community. Large population shifts can occur during summer months as a direct result of the seasonal availability of these activities or tourism draws within a community. Communities that are home to educational institutions such as colleges and universities can have a different population shift during the fall and winter months when students are attending school and residing in the community (e.g. student residences). In both instances the increased risk due to overnight accommodation (sleeping) either in a trailer/hotel/or school residence can be a major factor which can impact the demand for fire protection services. The Municipality of Clarington experiences a very minor population shift throughout the year. Specifically, there is a slight population shift during the spring and summer months when the Municipality hosts multiple events including Apple Fest, Summer Fest, Wooden Boat Festival and Rotary "Rockin" Rib Fest. As well, Bowmanville hosts Canada's biggest country music festival in August for three days which will bring thousands of visitors to the Municipality over the span of a weekend. However despite the high number of visitors, this population shift is only temporary. Specific fire protection strategies to address population shifts should not be required; they should be accommodated as part of broader services such as pro -active fire inspections of the facilities occupied by this demographic. Demographic Profile Page -1-16 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I2.3 Vulnerable Individuals or Occupancies Identifying the location and number of vulnerable individuals, or occupancies within the community will provide insight into the magnitude of this particular demographic within a community. This demographic is typically defined as requiring some type of assistance due to physical/cognitive limitations, disabilities, drug or alcohol use and others that may require assistance to evacuate in the event of a fire. Occupancies that should be considered when assessing this demographic include hospitals, senior's apartments, group homes, rooming houses, residential care facilities, daycare centres and long-term care facilities. Occupancies that should be considered when assessing this demographic include hospitals, seniors' apartments, group homes, rooming houses, residential care facilities and long-term care facilities. Table I-7 lists these occupancies in Clarington. Table I-7: Occupancies in Clarington Name Address Lakeridge Health 47 Liberty St. S., Bowmanville Kingsway Arms at Clarington Centre 65 Clarington Blvd., Bowmanville Marnwood Lifecare Centre 26 Elgin St., Bowmanville Strathaven Lifecare Centre 264 King St. E., Bowmanville Whitecliffe Terrace Retirement Residence 1460 Highway 2, Courtice Fosterbrooke Long -Term Care Facility 330 King Ave. W., Newcastle Bowmanville Urgent Care 222 King St. E., Bowmanville Newcastle Lodge for Seniors 165 King St. E., Newcastle Durham County Seniors Lodge 200 Station St. W., Orono Group Home #1 95 Queen St., Bowmanville Group Home #2 121 Queen St., Bowmanville Group Home 43 138 Queen St., Bowmanville Group Home #4 89 Church St., Bowmanville Group Home #5 106 Church St., Bowmanville Group Home #6 23 Lovers Lane, Bowmanville As the population continues to age, the demand for senior's residents and health care facilities will increase. It is important that Clarington Emergency and Fire Services be aware of these vulnerable individuals and occupancies. Optimizing the first two lines of defense will be critical. As this segment of population continues to grow it will be important for Clarington Emergency and Fire Services to commit the necessary staffing and resources to deliver appropriate fire prevention and education programs. I2.4 Language Barriers to Public Education Cultural diversity and ethnic background can be factor that fire departments must consider in developing and delivering programs related to fire prevention and public education. Communication barriers in terms of language and the ability to read written material can have an impact of the success of these programs. Table I-8 provides a breakdown knowledge of official Canadian languages within the Municipality based on the 2011 Statistics Canada census information. Demographic Profile Page — I-17 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-8: Knowledge of Official Languages6 Language Clarington Total /o Total Ontario Total /° Total Total population? 84,195 - 12,722,065 - English 78,060 92.7% 8,677,040 68.2% French 35 0.1% 493,300 3.9% English and French 5,920 7.0% 3,264,435 25.7% Neither English nor French 185 0.2% 287,290 2.3% English is the primary language of the Municipality's population (92.7%). Therefore language barriers are expected to be relatively infrequent. However, communications barriers, including language differences, should still be taken into consideration, especially when working with specific community groups. I2.5 Income Levels Table I-9 summarizes household data from the 2006 Census from Statistics Canada. Clarington has a significantly higher population density than the province. Clarington also has a higher median income than the provincial average. The value of dwellings owned is lower than the provincial average, as well as the distribution of rental properties, whereas the percent of owned dwellings is almost 20% higher than that of the province. These statistics are fairly typical for a combined urban and rural community such as Clarington. Table I-9: 2006 Statistics Canada Household Data Census Characteristic Clarington Ontario Population Density 127.3 13.4 Median Income (all private households) $77,627 $60,455 Average Value of Owned Dwelling $274,598 $297,479 Total 9 of Dwellings Owned 23,845 3,235,495 % Owned Dwellings 88.8% 71.2% % Rented Dwellings 11.2% 28.8% 6 Source: Statistics Canada — 2011 Census Data Total population excluding institutional residents Demographic Profile Page -1-18 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I2.6 Demographic Profile Observations The demographic analysis of Clarington indicates that by age category the Municipality is very representative of the provincial statistics. Seniors as a component of the population are also reflective of the provincial statistics and as such should be considered as a vulnerable component of the population. There are a number of buildings identified where the most vulnerable demographic of the community reside. These buildings should be considered as high risk with regard to developing a pro -active fire prevention and protection program. Optimizing the first two lines of defence should be considered a priority for these facilities as part of the Fire Master Plan. English is the predominate language within the community representing 92.7% of the population. This indicates that there should be a very minimal language barrier in the delivery of fire prevention and public education programs. Median income is higher than the provincial average as well as home ownership levels, while average dwelling values are lower compared to the provincial average. Demographic Profile Page -1-19 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I3.0 GEOGRAPHY / TOPOGRAPHY / ROAD INFRASTRUCTURE Located approximately 40 km east of Toronto within the Regional Municipality of Durham, the Municipality of Clarington is one of the largest municipalities in the Greater Toronto Area (611 km2 in land area). The Municipality of Clarington is bounded by Oshawa to the west, Lake Ontario to the south, the Township of Scugog to the north and Northumberland County to the east. Clarington is comprised of urban and rural areas with a variety of land uses. These include commercial, industrial (e.g. Darlington Nuclear Generating Station and St. Mary's Cement), high, medium and low density residential, agricultural, institutional (schools, hospitals, and nursing homes), and assembly occupancies. The existing land uses are depicted below in Figures I-1 to I-6. The Municipality's transportation network includes a section of Highway 401, the southern terminus of Highway 35/155, and will soon include an extension of Highway 407. The east -west portion of the Highway 407 extension will run through the northern area of the Municipality, connecting the existing section of the 407 to Highway 35/155. The north -south portion of the extension will run between Courtice and Bowmanville connecting the future east -west portion of Highway 407 with Highway 401. The 407 extensions will provide alternate access to points east and west of Clarington when completed. A two-lane regional highway (King Street / Durham Highway 2) provides a local east/west transportation link through the core of Courtice, Bowmanville and Newcastle. The transportation network also includes CP and CN rail lines. The existing transportation network is depicted below in Figure I-7. Public transportation is available from the provincially operated GO Transit System as well as the Durham Regional Transit (DRT) System via bus service. Geography / Topography /Road Infrastructure Page — I-20 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Figure I-1: Existing Land Use — Clarke Rural Area 1_. IS ONE ? �►'` �� f%� � � �% iii : ".' --am 22L�� ` � -21 �a .. VPAFmP- LAKE ONTARIO URBAN BOUNDARY ----- NAMLETBOUNDARY ENVIRONMENTAL PROTECTION AREA GREEN SPACE GENERAL AGRICULTURALAREA o AGGREGATE EXTRACTION AREA H R ORM BOUNDARY ®NATURAL COREAREA � PUBLIC SECONDARY SCHOOL URBAN RESIDENTIAL ® L'12= LINKAGE MEA i PueLlc ELEMENTARY SCHOOL MAP Al (CLARKE) - COUNTRY RESIDENTIAL WATERFRONT GREENwAr ..����� SPECIAL POLICY MEA LAND USE CLARKE RURAL AREA HAMLETRE.I.ENI- • DISTRICT PARK ......... SPECIALSTUOYAREA OFFICIAL PLAN ® RORALEMUl CLUSTER ftESID • HAMLET PARK TOURISM RODE MUNICIPALITY OF CLARINGTON AUGUST, ]Ot0 UTILITY AGRPRIMEICULTURAL AREA • GOLF COURSE Geography / Topography /Road Infrastructure Page — I-21 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Figure 1-2: Existing Land Use — Darlington Rural Geography / Topography /Road Infrastructure Page — I-22 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I Community Risk Profile February 2014 Figure 1-3: Existing Land Use — Courtice Urban A!f'i'�� �� / • of � �-� URBANBWNDARY ® FUTURE URBAN RESIDENTIAL TY ••11 _� � URSAN RESIDENML ••�• LMEDIUM DENS —_�-�--I ® RESIDENTULL ••w•••O •i•• HIGH DENSRY RESIDENTIAL I Oi• TOWN CENTRE 1 ® SHOING DS M PP TRCT 1 © Oi' NEIGHBOURHOOD M O/l I CENTRE I ®O -�r M,�• M O HIGHWAY COMMERCML i U O M EMPLOYMEMAREAPRESTIGE O 0 ono 0 0 ® LIGHT NDUSTRIALAREA •• • ® ® C£NEM r o �- MDUSTRLILAREA BUSINESS PARK M 1� •• M •��. i UTILITY EWAO M o• ® PRO TECTIW AREA © j® GREEN SPACE I-TEIVRM 1 O GREENWAWT ® COIAMUNRY PARK 1 OM $ ® DISTRICT PARK IY ® NEIGHBOURHOOD 1 PPRI( S WNDARYSCHOOL SECONDARY SCHOOL M O PUSUC ELEMENTARY SCMOW 1 SEPARATE M R H ELEMENTARY SCHOOL to o M SECONDARY O PLPNNWG AREA IQ \ ♦. ••••••••. SPECM POAREA A © ® r 'V ...•••••.•• SPECIAL STUDY PREA 1 411 GO STATION MAP A2 LAND USE COURTICE URBAN AREA OFFICIAL PLAN MUNICIPALITY OF CLARINGTON MAY, Ati tel„ IM Geography / Topography /Road Infrastructure Page I-23 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Figure 1-4: Existing Land Use — Bowmanvi Ile Urban Area Geography / Topography /Road Infrastructure Page — I-24 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I Community Risk Profile February 2014 Figure 1-5: Existing Land Use — Newcastle Village Urban Area Geography / Topography /Road Infrastructure Page I-25 DILLON CONSULTING 1. r, M r- M 1 Q LAKE ONTARIO ��� URBANBWNDARY ®FUTURE ® COMMUNITY PARK URBAN RESIOENRAL URBAN RESIDENTNL ® DISTRICT PARK OMEDIUM DENSITY RESIDENTIAL ® NEIGHBWRHWD PARK - VILLAGE CENTRE PUBLIC SONDA ECRY SCHOOL HARSOURFRONT CENTRE SEPARATE SECONDARY SCHOOL LIGHT PUBLIC INDUSTRW AREA ELEMENT -SCHOOL - UTIL" SEPARATE ELEMENTARY SCHOOL ®ENVIRONMENTAL PROTECTION AREA SECONDARY P .ING AREA - GREEN SPACE ......... SPEC -POLICY AREA N WATERFRONT GREEN- yy��TOURISM NODE �F MAP A4 LAND USE NEWCASTLE VILLAGE URBAN AREA OFFICIAL PLAN MUNICIPALITY OF CLARINGTON 1MY°` APRIL. sou Geography / Topography /Road Infrastructure Page I-25 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Figure 1-6: Existing Land Use — Orono Urban Area REGIONAL ROAD < ................................. �I 1 •1 I• rcI < 1 URBAN BOUNDARY :1 ° i e = I URBAN RESIDENTIAL 8 •I 1 - VILLAGE CENTRE 1 NEIGHBOURHOOD :I CENTRE 1 •: • • 1 HIGHWAY COMMERCIAL ENVIRONMENTAL � I PROTECTION AREA r�•• :I 1 GREEN SPACE •: I COMMUNITY PARK 1 — S 1 ® DISTRICT PARK sr PUBLIC ELEMENTARY SCHOOL ® iI •......... SPECIAL STUDY AREA 3 Io SOMMERVILLE DRIVE r S : :1 :I MAP A5 I LAND USE �•_� ORONO URBAN AREA OFFICIAL PLAN j MUNICIPALITY OF CLARINGTON /// 200 700 0 200 3f10 600 Metres AUGUST, 2010 THIS CONSOLIDATION IS PROVIDED FOR CONVENIENCE ONLY AND REPRESENTS REQUESTED MODIFICATIONS AND APPROVAL Geography / Topography /Road Infrastructure Page — I-26 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 0 1000 2000 b00 m 1000 m Figure 1-7: Existing Transportation Network FREEWAY TYPE A ARTERIAL TYPE 8 ARTERIAL -------- - - - - -- TYPE C ARTERIAL COLLECTOR ROAD — — — — — — — REGIONAL TRANSIT SPINE ..................... INTER -REGIONAL TRANSIT UNE EXISTING FUTURE 4 F y FREEWAY INTERCHANGE O GRADE SEPARATION MAP B1 TRANSPORTATION CLARINGTON RURAL AREA OFFICIAL PIAN MUNICIPAUTY OF CLARINGTON AUGUST, 2010 REFER TO SECTION 19 Geography / Topography /Road Infrastructure Page — I-27 D I LLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I3.1 Geography/Topography/Road Infrastructure Profile Observations The risks associated with the geography, topography and road infrastructure within the Municipality are predominantly those associated with the large overall size of the municipality and the rural residential areas located outside of the built-up communities. This typically means longer response times from the fire stations, centred in the urban centre of the community, out to the rural homes in the surrounding areas. The road network layout is primarily a grid pattern of arterial roads and local roads (outside of the urban areas) which provides good access to these rural residential locations. The population centres within the Municipality, including Bowmanville, Courtice, Newcastle and Orono are well served and connected by the road network. The following potential constraints within the Municipality of Clarington have been identified: • The Port Darlington Neighbourhood Area is located south of the Canadian National Railway line and fronts onto Lake Ontario. This area is currently accessed by three roads; two of which are at grade, and the grade separated crossing cannot accommodate a fire truck. • There is a rail line running east -west throughout the southern section of the Municipality, which has the potential to block roads at railway crossings. I3.2 Past Fire Loss Statistics Identifying and understanding trends through the analysis of historical data provides valuable insight into community's specific trends. Assessing the key factors of life safety risk and fire risk in relation to provincial statistics provides a foundation for evaluating where specific programs or services may be necessary. 13.2.1 Fire Loss by Occupancy Classification For the period from 2007 to 2011 there were 64,757 fires within Ontario with a loss reported to the OFM. During this period 58% or 37,559 of these involved a structure and 28% or 18,132 of these fires involved a vehicle. Table I-10 indicates the provincial fire loss by property classification for the period 2007 to 2011. Table 1-10: Provincial Fire Loss by Occupancy Classification Period 2007 to 20118 Occupancy Classification (OBC) Occupancy Definition Fire Risk Sub -model (OFM) Ontario Fire Loss ti Occupancy Classification Group A — Assembly Assembly occupancies 5% Group B - Institutional Care or Detention occupancies 1% Group C - Residential Residential occupancies 71% Group D - Business Business and Personal Services Occupancies 3% Group E - Mercantile Mercantile occupancies 4% Group F - Industrial Industrial occupancies 8% 8 Source: 2012 Ontario Fire Marshall data Geography / Topography /Road Infrastructure Page — I-28 DI LLON < � I\ 't I I 1 \l'. Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Occupancy Occupancy Definition Ontario Fire Loss Classification Fire Risk Sub -model ti Occupancy Classification (OBC) (OFM) Occupancy Classification Other occupancies Not classified within the Ontario Building Code 8% Group B - Institutional (i.e. farm buildings) 0.9% Reported fires Reported structure fires 40,854 For this period 71% of Ontario fires with a loss occurred within Group C - residential occupancies. In comparison to the provincial analysis the Municipality of Clarington property loss as a result of fires is presented in Table I-11 below (OFM data for Clarington). For the same period the analysis indicates that 71.7% of the fires reporting a loss occurred in Group C residential occupancies. The fire loss statistics for each occupancy type are generally comparable to the provincial averages. Table I-11: Municipality of Clarington Fire Loss by Property Classification Period 2007 to 2011 Occupancy Occupancy Definition Municipality of Clarington Classification Fire Risk Sub -model Fire Loss by (OBC) (OFM) Occupancy Classification Group A — Assembly Assembly occupancies 7.0% Group B - Institutional Care or Detention occupancies 0.9% Group C - Residential Residential occupancies 71.7% Group D - Business Business and Personal Services Occupancies 2.2% Group E - Mercantile Mercantile occupancies 4.8% Group F - Industrial Industrial occupancies 5.2% Other occupancies Not classified within the Ontario Building Code (i.e. farm buildings) 8.3% Reported fires excluding buildings under National Farm 230 Building code (0 fires) 13.2.2 Property Fire Loss Property fire loss is another valuable performance measurement tool in assessing the cumulative impact of the "three lines of defence " utilized by a fire and emergency service. Table I-12 provides the Municipality of Clarington's historical property fire loss for the period from 2007 to 2011. An important consideration in evaluating this data is to consider the impact of a major fire with a large dollar loss and/or a series of larger fires with a combined significant large dollar loss. Overall the Municipality of Clarington has experienced a growing level of property loss as a result of fire from 2009 and also experienced a significant amount of property loss in 2008 as a result of fire. Geography / Topography /Road Infrastructure Page — I-29 DILLON <-11\ 't 1\>f I I -I KG Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table 1-12: Property Fire Loss (Dollars) Year Fire Loss 2007 $3,226,200 2008 $10,149,900 2009 $2,841,109 2010 $4,266,118 2011 $5,002,550 Source: 2007-2011 OFM Data for Clarington 13.2.3 Reported Fire Cause Assessing the possible cause of the fires reported is an important factor in identifying any potential trends, or areas that may be considered for introducing additional public education or fire prevention initiatives as part of the community fire protection plan. Table I-13 provides a summary of the reported possible cause of the fires reported during the period 2007 to 2011 for the Municipality of Clarington (OFM data for Clarington). Table I-13: Municipality of Clarington 2007 to 2011 Reported Fire Cause Naturo Fire Cause Number of Fires % of Cause Intentional Arson 18 7.5% Intentional Vandalism 21 8.7% Unintentional Vehicle collision 1 0.4% Unintentional Design, construction, installation, or maintenance deficiency 14 5.8% Unintentional Mechanical or electrical failure 32 13.3% Unintentional Misuse of ignition source 58 24.1% Unintentional Other unintentional 15 6.2% Unintentional Undetermined 9 3.7% Other Other 23 9.5 Undetermined Undetermined 50 20.7% Total Number of Reported Fires 241 100% There are four categories of cause utilized to classify the cause of a fire. These include intentional, unintentional, other, and undetermined. The "intentional' category recognises the cause of a fire to be started for a specific reason. These are typically classified as arson fires, and for example can be related to acts of vandalism, or to achieve personal gain through insurance payment. As indicated in the table, 16.2% of the fires reported for this period were intentional. Geography / Topography /Road Infrastructure Page — I-30 DI LLON (11\ 't I IInc Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 The "unintentional" category recognises a number of the common causes of a fire that represent both human behavioural causes such as playing with matches, and equipment failures such as a mechanical failure. Unintentional misuse of ignition source represented 24.1% of the cause for the 241 fires during this period. The cumulative percentage of unintentional fires represents a total of 53.5% of all fire causes. This indicates that there was no specific cause identified for over half of all fires during this period. 13.2.4 Reported Ignition Source Table I-14 similarly provides the reported ignition source for the fires that occurred during the period 2007 to 2011 (OFM data for Clarington). Table I-14: Municipality of Clarington 2007 to 2011 Ignition Source Class Reported Ignition Source Number of Fires % of Cause Appliances 19 7.9% Cooking Equipment 35 14.5% Electrical Distribution Equipment 20 8.3% Heating Equipment 17 7.1% Lighting Equipment 5 2.1% Open Flame Tools, Smokers' Articles 31 12.9% Other Electrical or Fire/Other Mechanical 7 2.9% Miscellaneous 16 6.6% Exposures 17 7.1% Undetermined 74 30.7% Unknown, not reported 0 0% Total number of fires and percentage 241 100% Cooking equipment represented the largest percentage of known ignition sources at 14.5°/x. However, 30.7% of all ignition sources were undetermined. 13.2.5 Reported Civilian Injuries and Fatalities Table I-15 indicates the number of fire related civilian injuries and fatalities that occurred within the Municipality of Clarington during the period 2007 to 2011. Geography / Topography /Road Infrastructure Page — I-31 DI LLON < � I\ 't I I 1 \l'. Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-15: Municipality of Clarington 2007 to 2011 Reported Civilian Injuries and Fire Deaths Occupancy Classification (OBC) Occupancy Definition Fire Risk Sub -model (OFNI) Injuries Fatalities Group A — Assembly Assembly occupancies 0 0 Group B - Institutional Care or Detention occupancies 0 0 Group C - Residential Residential occupancies 22 0 Group D - Business Business and Personal Services Occupancies 0 0 Group E - Mercantile Mercantile occupancies 0 0 Group F - Industrial Industrial occupancies 0 0 Other occupancies Not classified within the Ontario Building Code (i.e. farm buildings) 2 0 During this period there were 24 reported injuries, of which 22 was a result of a fire in Group C residential occupancies. There were no reported fatalities. 13.2.6 Past Fire Loss Profile Observations Based on the historical data for the period 2007 to 2011 the Municipality of Clarington experienced the highest rate of fires within the Group C residential occupancies. This result is consistent with that of the provincial profile. Unintentional misuse of ignition source representing 24.1%, mechanical/ electrical failure representing 13.3% and vandalism representing 8.7% were the leading known causes for fires during this period. The cumulative percentage of fire causes that could not be determined represented 42% of the 1426 fires reported during this period. Cooking equipment represented the largest percentage of known ignition sources at 14.5%. Additionally, 30.7% of all ignition sources were undetermined during this period. There were 24 reported injuries and no reported fatalities during this period, most of which occurred in Group C residential occupancies. The analysis of the past fire losses within the Municipality of Clarington further defines that Group C - Residential occupancies represent the highest level of risk within the community. Enhancing the first line of defence, including pro -active prevention and education programs, targeted at the areas identified within this Community Risk Profile, should be considered a priority within the Fire Master Plan. I3.3 Fuel Load Profile Fuel load typically refers to the amount and nature of combustible content and materials within a building. This can include combustible contents, interior finishes as well as structural materials. Combustible content tends to create the greatest potential fire loss risk. This can include industrial materials, commercial materials or typical office furnishings. Higher fuel loads results in increased fire loss risk due to increased opportunity for ignition and increased fire severity. Geography / Topography /Road Infrastructure Page — I-32 DI LLON ((1N1t'isnnc Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 In many communities large amounts of fuel load can be contained within a single occupancy such as a building supply business, or alternatively within a large multi -occupancy building such a historical downtown core. As presented previously within this report, age and construction of a building can also have an impact on fuel load given that older buildings likely have a larger volume of combustible construction such as wood framing rather than newer construction utilizing concrete and steel products. Our analysis of fuel load within the Municipality of Clarington indicates that there are a small number of buildings or occupancies where significant fuel loads are present that would be cause for any specific identification. Table I-16 outlines the various buildings in Clarington that contain significant fuel loads. Table I-16: Clarington Fuel Load Profile Building Name Address Concern Bowmanville Wood Products 261 Baseline Road Wood Pallets Bowmanville Tank Traders 40 Port Darlington Road Propane Bowmanville Goodyear 45 Raynes Avenue Rubber Bowmanville Millwork Truss 2021 Baseline Road Wood Bowmanville Trusses 17 Cigas Road Wood Courtice Paul Lizotte Fuels 422 Lake Road Flammable Liquids Bowmanville Dom's Auto Parts 1604 Baseline Road Auto Wreckers Courtice Newcastle Recycling 4349 Concession Road 4 Auto Wreckers Newtonville Abe Auto Wreckers 2532 Concession Auto Wreckers Bowmanville Walmart 2320 Highway 2 Size Bowmanville Home Depot 120 Clarington Boulevard Lumber Bowmanville Canadian Tire 2000 Green Road Size Bowmanville Home Hardware 246 King Street East Lumber Bowmanville Orono Co-op 5968 Co-op Road Fertilizer Orono Geography / Topography /Road Infrastructure Page — I-33 DILLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Building Name Address Concern Energy From Waste 72 Osborne Road Waste Material Courtice Rona Hardware 275 Toronto Street Lumber Newcastle OPG 2151 South Service Road Warehouse Bowmanville New City Resources 250 Baseline Road Plastics Bowmanville Baseline Storage 211 Baseline Road East Unknown Storage Bowmanville Durham Self -Storage 2385 South Service Road Unknown Storage Bowmanville Storage Depot 1632 Baseline Drive Unknown Storage Courtice Newcastle Storage 400 Toronto Street Unknown Storage Newcastle The connected multi -occupancy structures within the downtown core present the highest amount of fuel load concentration. Regular fire prevention inspection cycles and strategies to enforce continued compliance with the OFC are considered as best practices to achieving the legislative responsibilities of the municipality and providing an effective fire protection program to address fuel load risks. 13.3.1 Fuel Load Profile Observations In comparison to the number of buildings within the Municipality of Clarington there are a small number of buildings identified as having a site specific fuel load concern. In addition to ensuring compliance to the requirements of the OBC and the OFC there are operational strategies that a fire department can implement to address fuel load concerns. For example pre -planning a building of this nature can provide an operational advantage in the event of fire. Geography / Topography /Road Infrastructure Page — I-34 DI LLON < � I\ 't I I 1 \l'. Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 I4.0 COMMUNITY GROWTH & DEVELOPMENT I4.1 Historic Growth The following table indicates the historic populations within the Municipality of Clarington, as provided by Statistics Canada, Census Profiles. Historic household population statistics are also included, where available. Table 1-17: Historic Growth in Population and Households Year Clarington Population % Change in Population Clarington Households % Change in Households 1991 49,479 N/A N/A N/A 1996 60,615 22.5% 20,080 N/A 2001 69,834 15.2% 23,619 17.6% 2006 77,820 11.4% 27,753 17.5% 2011 84,548 8.6% 30,797 11.1% From 2006 to 2011 the population of Clarington grew by 8.6%, approximately 1.7% per year. This is greater than the population growth of the province over the same time period, which was 5.7%, closer to 1.14% per year. Households grew by 11.1% over the same period, approximately 2.2% per year. I4.2 Growth Projections Table I-18 summarizes the growth projections for the Municipality from 2011 to 2031. Table 1-18: Population and Employment Growth Projections Year 2011 2016 2021 2026 2031 Population 84,548 97,100 109,800 123,900 140,400 Households 30,797 33,600 38,400 43,800 49,800 Employment 22,575 26,895 32,150 36,070 38,420 The population and employment estimates shown above predict that over the next 10 years (2011-2021) the Municipality will experience an increase in population of 29.9%, representing approximately 2.9% annual growth. However, over the next 20 years the Municipality of Clarington is anticipated to significantly grow by 66% between 2011 and 2031. Households are also predicted to significantly increase by approximately 61.7% over the next 20 years, or 3.1% per year. Similarly, employment is predicted to increase even more by 70.2% over the next 20 years, or 3.5% per year. Community Growth & Development Page — I-35 DILLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 14.2.1 Growth Projections Profile Observations The population of the Municipality of Clarington is anticipated to grow at a rate of 3.3% over the coming 20 year period. This represents a 29.9% population increase over the next 10 years. This expected population increase over the next 20 years is anticipated to be accommodated primarily in the Municipality's urban communities, including Bowmanville, Courtice and Newcastle. In contrast, rural areas have seen a decrease in population growth and housing due to policies limiting residential growth on agricultural land (based on the Places to Grow Act) and focus on residential development in the urban areas. Ultimately, rural populations will continue to decline (Municipality of Clarington, 2011). Future transportation infrastructure within Clarington will contribute to the growth of the Municipality. Highway 407 is expected to expand to Highway 35/115 by 2020 and there is a proposed GO Transit expansion to Clarington (specifically in Bowmanville). These projects are expected to drive further demand for both residential and non-residential development (Municipality of Clarington, 2011). As well, there are additional large-scale infrastructure projects projected for the Municipality that will further increase the local economy and contribute to the growing employment numbers. Some of these projects include the Darlington Nuclear refurbishment project, expansion of the Darlington Nuclear Station, Durham Region's "Energy from Waste" facility and the Darlington Refurbishment Complex. As the majority of new growth will occur in existing population and employment are not expected to vary However, the Municipality's urban communities will growth. I4.3 Risk Profile Model settlements, the future geographic locations of significantly within the 10 year study horizon. see an increase in density due to the projected The OFM Fire Risk Sub -model defines risk "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 afire incident along with the effects of heat, smoke and toxicity threats generated from an incident". The OFM model develops an overall risk assessment "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 OFM Fire Risk Sub -model provides a matrix as one option in arriving at the level of risk for a range of scenarios. Alternatively the model provides the opportunity 'for analysis purposes, the community being assessed can be defined as the municipality in its entirety or as a particular segment of it that distinguishes it from other parts ". The model further provides that "it may be convenient to subdivide a municipality based on residential subdivision, downtown sections, industrial park, and a rural area ". For analytical purposes, the methodology within this study uses the OFM Fire Risk Sub -model major occupancy classifications as the basis for segmenting the community by primary building use. Each major occupancy classification is assigned a probability level based on the OFM Fire Risk Sub -model definitions. A consequence level also using the OFM Fire Risk Sub -model definition is then assigned for each major occupancy classification. The methodology within this report includes a further process of assigning `weighting factor' to each of the eight risk factor categories identified by the OFM Fire Risk Sub -model. Utilizing a range from I (lowest) to 3 (highest) each of the factors is assigned a weight factor, to calculated a weighted average. The weight factor assigns more or less priority to each of the given factors. For example, the demographic profile that identifies the number of vulnerable residents has been assigned the highest factor weight of 3. This process results in the most relevant categories having more impact on the risk priority level calculated. Community Growth & Development Page — 1-36 DI LLON <-11\ 't IN>f I I l NG Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 The level of risk (Priority Level) for each major occupancy classification is determined by multiplying "probability x consequence = risk level (priority)': This provides the ability to determine an overall risk level for each major occupancy classification within the community. This methodology then coordinates the assigned risk level for each major occupancy classification with the Council approved zoning by-law information and mapping. This process provides the opportunity to create a visual model (map) of the Community Risk Profile. This provides the opportunity to view both the current and projected level of risk within the community based on the Council approved Official Plan. Creating the Community Risk Profile Model provides the opportunity to evaluate the current level of fire protection services provided. The model can further identify where risk levels may increase or change based on growth and long-term planning of the community. 14.3.1 Probability Levels The probability of a fire occurring can in part be estimated based on historical experience of the community. The experience of other similar communities and that of the province as a whole can also provide valuable insight into the probability of a fire occurring. The experience of the evaluator and the local fire service staff in collaborating on determining probability is also a key factor. The OFM Fire Risk Sub -model categorizes the probability of an event occurring into five levels of likelihood. Table I-19 identifies the OFM Fire Risk Sub -model categories. Table 1-19: OFM Fire Risk Sub -model Likelihood Levels (Probability) Description Level Specifics Rare 1 - may occur in exceptional circumstances - no incidents in the past 15 years Unlikely 2 - could occur at some time, especially if circumstances change - 5 to 15 years since last incident Possible 3 - right occur under current circumstances - 1 incident in the past 5 years Likely 4 - will probably occur at some time under current circumstances - multiple or reoccurring incidents in the past 5 years Almost Certain 5 - expected to occur in most circumstances unless circumstances change - multiple or reoccurring incidents in the past year 14.3.2 Consequence Levels The consequences as a result of a fire relate to the potential losses or negative outcomes associated should an incident occur. The Fire Risk Sub -model identifies four components that should be evaluated in terms of assessing consequence. These include: Life Safety: Injuries or loss of life due to occupant and firefighter exposure to life threatening fire or other situations. Property Loss: Monetary losses relating to private and public buildings, property content, irreplaceable assets, significant historic/symbolic landmarks and critical infrastructure due to fire. • Economic Impact. Monetary losses associated with property income, business closures, downturn in tourism, tax assessment value and employment layoffs due to fire. Community Growth & Development Page — I-3 7 DI LLON < � I\ 't I I Inc Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Environmental Impact. 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 or fire suppression activities. The OFM Fire Risk Sub -model evaluates the consequences of an event based on five levels of severity. Table I-20 identifies the OFM Fire Risk Sub -model categories. Table 1-20: OFM Fire Risk Sub -model 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 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 14.3.3 Risk Levels Once probability and consequence are determined for each major occupancy classification the level of risk is calculated by multiplying "probability x consequence = risk level (priority)': Table I-21 identifies the four levels of risk identified within the OFM Fire Risk Sub -model including the lower and upper range of each risk classification and the relative definition of each. Community Growth & Development Page — I-38 DILLUN Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table 1-21: OFM Fire Risk Sub -model Risk Levels 14.3.4 Ontario Fire Code Compliance A major determinate in assessing risk within a community and the major building classifications is compliance with the Ontario Fire Code. The Ontario Fire Code which was adopted in 1981 and the Ontario Building Code were developed to ensure uniform building construction and maintenance standards are applied for all new building construction. The codes also provide for specific fire safety measures depending on the use of the building. Examples of the fire safety issues that are addressed include: • occupancy • exits/means of egress including signs and lighting • fire alarm and detection equipment • fire department access • inspection, testing, and maintenance In 1983 the OFC was further expanded to include retrofit requirements for many of the building constructed prior to 1981. Retrofit requirements were established to ensure a minimum acceptable level of life safety is present. A number of occupancy types are included within the retrofit requirements including assembly, boarding, lodging and rooming houses, health care facilities, multi -unit residential, two -unit residential, and hotels. Determining the status of compliance or non-compliance including the status of retrofit requirements particularly for major building occupancies is an important component of developing the Community Risk Profile. This is particularly important within the major occupancies classifications where there is a documented history of property loss as a result of fire, and/or injuries and fatalities as a result of fire. Group A — Assembly and Group B — Institutional occupancies are the two primary occupancies types where more detailed analysis of compliance and non-compliance should be considered. Where compliance has been achieved and documented these occupancy classifications can be considered as part of the standard risk identification methodology within this report. Where compliance has not been achieved including retrofit requirements these occupancies should be evaluated independently adding a further assessment of OFC compliance. Community Growth & Development Page — I-39 DI LLON Priority Lower — Upper Risk .Level Definition Level Range Low Risk L1 0 to 6.3 - manage by routine programs and procedures, maintain risk monitoring - requires specific allocation of management Moderate Risk L2 6.4 to 12.5 responsibility including monitoring and response procedures High Risk L3 12.6 to 18.7 - community threat, senior management attention needed Extreme Risk L4 18.8 to 25.0 - serious threat, detailed research and management planning required at senior levels 14.3.4 Ontario Fire Code Compliance A major determinate in assessing risk within a community and the major building classifications is compliance with the Ontario Fire Code. The Ontario Fire Code which was adopted in 1981 and the Ontario Building Code were developed to ensure uniform building construction and maintenance standards are applied for all new building construction. The codes also provide for specific fire safety measures depending on the use of the building. Examples of the fire safety issues that are addressed include: • occupancy • exits/means of egress including signs and lighting • fire alarm and detection equipment • fire department access • inspection, testing, and maintenance In 1983 the OFC was further expanded to include retrofit requirements for many of the building constructed prior to 1981. Retrofit requirements were established to ensure a minimum acceptable level of life safety is present. A number of occupancy types are included within the retrofit requirements including assembly, boarding, lodging and rooming houses, health care facilities, multi -unit residential, two -unit residential, and hotels. Determining the status of compliance or non-compliance including the status of retrofit requirements particularly for major building occupancies is an important component of developing the Community Risk Profile. This is particularly important within the major occupancies classifications where there is a documented history of property loss as a result of fire, and/or injuries and fatalities as a result of fire. Group A — Assembly and Group B — Institutional occupancies are the two primary occupancies types where more detailed analysis of compliance and non-compliance should be considered. Where compliance has been achieved and documented these occupancy classifications can be considered as part of the standard risk identification methodology within this report. Where compliance has not been achieved including retrofit requirements these occupancies should be evaluated independently adding a further assessment of OFC compliance. Community Growth & Development Page — I-39 DI LLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Completing the independent evaluation provides the opportunity to assess these buildings on a case by case basis and as such does not impact the overall risk level for the occupancy classification. In the event an individual property is assigned a higher level of risk as a result of non-compliance this methodology provides the opportunity for re-evaluating the risk level for that specific property once compliance is achieved. Group A — Assembly Occupancies — Non -Compliant OFC Information provided by the Municipality indicates that approximately fifteen Group A - Assembly occupancies are currently not in compliance with the OFC. Group B — Institutional Occupancies — Non -Compliant OFC Information provided by the Municipality indicates that approximately one Group B — Institutional Occupancy is currently not in compliance with the OFC. The care and detention centers classified within this occupancy classification can present unique challenges in the event of a fire. Utilizing the "first line of defence" including pro -active fire prevention and public education programming in addition to a regular fire inspection program to sustain compliance with the OFC is an effective strategy in managing this risk. Group C—Residential Occupancies — Vulnerable Demographics Information provided by the Municipality indicates that approximately thirty Group C — Residential Occupancies are currently not in compliance with the OFC. Utilizing the "first line of defence" including pro -active fire prevention and public education programming in addition to a regular fire inspection program to sustain compliance with the OFC is an effective strategy in managing this risk. Group D — Commercial Occupancies — Fuel Load High Risk Information provided by the Municipality indicates that approximately ten Group D - Commercial Occupancies are currently not in compliance with the OFC. Group E — Mercantile Occupancies — Non -Compliant OFC Information provided by the Municipality indicates that approximately ten Group E - Mercantile Occupancies are currently not in compliance with the OFC. Group F — Industrial Occupancies — Non -Compliant OFC Information provided by the Municipality indicates that approximately ten Group F - Industrial Occupancies are currently not in compliance with the OFC. A fire in an industrial area would involve hazardous materials, with the potential for a release of anhydrous ammonia. For this reason, these properties should be considered high risk (RL -3). I4.4 Municipality of Clarington Risk Evaluation Table I-22 presents the completed risk evaluation for the Municipality of Clarington. The evaluation utilizes the methodology described above following the framework of the OFM Fire Risk Sub -model. Community Growth & Development Page — I-40 i�I LLON \a i „mac Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 The risk evaluation summary incorporates all community risk factors within the Municipality of Clarington for each major occupancy classification. The summary identifies that the Municipality has no extreme risk occupancies. Institutional occupancies were assigned high risk. This should be reflected in the department's fire prevention and public education program planning. Assembly and residential occupancies are identified as moderate level risks. If, however, any buildings under this occupancy are non-compliant, they may be considered high risk. This would apply specifically to higher density residential units or assembly occupancies. Another consideration would be residential buildings which specifically house higher risk age -groups (e.g. seniors or vulnerable persons), which should be given a higher priority for programming based on increased risk. Business and mercantile occupancies in Clarington represent a moderate risk. Community Growth & Development Page — I-41 DILLON Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 Table I-22: Risk Evaluation Summary Community Risk Profile Factors Property Stock BuildingBuilding eight Priority Level 0 to 6.2 = Low Exposures 1 I i Geography Topography ' , i Fuel Load Prob. Level Cons. Level Priority Level Risk Level Weight Factor 1 2 3 — Moderate 3 1 3 1 3 2 4 — Major 18.8 to 25.0 = Extreme = OBC Major Occupancy Classification 5 — Almost Certain 5 - Catastrophic Risk Level Assessment Group A Assembly 3 2 3 2 4 2 1 2 2.4 3 7.2 RL -2 Group B Institutional 4 3 4 3 5 3 1 3 3.2 4 12.8 RL -3 Group C Residential 4 2 3 3 5 2 3 2 3.1 3 9.3 RL -2 Group D Business 3 3 3 4 2 2 2 3 2.6 3 7.8 RL -2 Group E Mercantile 3 3 3 4 2 2 2 3 2.6 3 7.8 RL -2 Group F I Industrial 3 2 2 2 2 2 2 4 2.3 3 6.9 RL -2 Mobile Homes & Trailers 1 2 3 3 5 2 3 2 2.9 3 8.8 RL -2 Probability: 1 — Rare Consequence Level: Priority Level 0 to 6.2 = Low = Risk Level RL -1 — Low Risk 1 — Insignificant 2 — Unlikely 2 — Minor 6.3 to 12.5 = Moderate = RL -2 — Moderate Risk 3 — Possible X 3 — Moderate = 12.6 to 18.7 = High = RL -3 — High Risk 4 — Likely 4 — Major 18.8 to 25.0 = Extreme = RL -4 — Extreme Risk 5 — Almost Certain 5 - Catastrophic Community Risk Profile Page — I-42 / DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 14.4.1 Municipality of Clarington Risk Model 14.4.2 Methodology This section provides a brief outline of the scope and methodology used in order to provide insight into the modeling procedures adopted to assess Municipal risk. A Geographic Information Systems (GIS) model was developed to assess risk based on historic call locations, risk geography, land use and the department's existing and predicted emergency response travel times relate to these risks. The basis of the GIS risk model is the development geographical risk zones. These zones represent areas of low, moderate, high and extreme risk categories based on land use. The Municipality's existing zoning by-law was used to determine the boundaries and building occupancies associated with each zone. The associated building occupancies were used to determine the base risk category, which assumes that the buildings in the risk zone are in compliance. The base risk zones associated with each occupancy category are listed in Table I-23. Table 1-23: Base Risk Zone Category by Occupancy Occupancy Occupancy Definition Base Risk Zone Category Classification Fire Risk Sub -model Assigned (OBC) (OF1V1) Group A — Assembly Assembly Assembly occupancies moderate Group B - Institutional Institutional Care or Detention occupancies high Group C - Residential Residential occupancies moderate Residential Group D - Business Business and Personal Services Occupancies moderate Group E - Mercantile Mercantile occupancies moderate Group F 1 - Industrial low Group F2 - Industrial moderate Industrial occupancies Group F3 - Industrial high Not classified within the Ontario Building Other occupancies Code (i.e. farm buildings) low Community Risk Profile Page — I-43 / DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix I — Community Risk Profile February 2014 14.4.3 Existing Risk and Response (Call Locations) The existing risk zones and existing emergency response are presented in Figure I-8. This figure depicts historic call data from 2008 - 2012 overlaid onto the existing risk zones represented in the model. Calculations were carried out to estimate the number of calls within each risk zone category and the travel time associated. From the calculations table, 59% of the moderate risk calls are responded to in four minutes or less of travel time. Ninety-one percent of moderate risk calls are responded to in eight minutes travel time or less and 95% of moderate risk calls are responded to in ten minutes of travel time or less. This also shows that 56% of the low risk calls are responded to in four minutes or less of travel time, 93% in eight minutes of travel time or less and 98% in ten minutes of travel time or less. This historical call data indicates that the department is able to respond in to the majority of the calls in a timely manner. 14.4.4 Existing Risk and Response (Geography) The GIS model was used to approximate existing geographic coverage of the existing risk zones within the urban and rural areas, shown in Figure I-9 and Figure I-10. Figure I-9 depicts the geographic coverage of risk within the existing urban area with regards to travel time. This coincides with NFPA 1710 response measures. As illustrated in the figure, 73% of high risk zones, 58% of moderate risk zones and 33% of low risk zones are covered within four minutes of travel time. The figure also demonstrates that the fire department is able to reach 100% of high risk areas, 99% of moderate risk areas and 91% of low risk areas within eight minutes of travel time. Figure I-10 depicts the geographic coverage of risk within the rural area of the municipality with regards to total response time (turnout and travel time). This coincides with NFPA 1720 response measures. Based on historical call data, a turnout time of five minutes was assumed for Station 1, 2 and 3; and a turnout time of four minutes was assumed for Station 4 and 5. As illustrated in the figure, the department is able to respond to 57% of high risk areas, 48% of moderate risk areas and 30% of low risk areas within a total response time of 14 minutes. 14.4.5 Future Risk and Response (Geography) The model was used to approximate geographic coverage of the future risk zone areas. Given the development that is predicted in the future, approved growth areas and secondary plans were incorporated into the risk model. The methodology for this scenario was the same as for the Existing Risk and Response discussed above. The results are shown in Figure I-11 and Figure I-12. Figure I-11 depicts the geographic coverage of risk within the future urban area with regards to travel time. This coincides with NFPA 1710 response measures. As illustrated in the figure, 75% of high risk zones, 59% of moderate risk zones and 34% of low risk zones are covered within four minutes of travel time. The figure also demonstrates that the fire department is able to reach 100% of high risk areas, 99% of moderate risk areas and 89% of low risk areas within eight minutes of travel time. Figure I-12 depicts the geographic coverage of future risk within the rural area of the municipality with regards to total response time (turnout and travel time). This coincides with NFPA 1720 response measures. Based on historical call data, a turnout time of five minutes was assumed for Station 1, 2 and 3; and a turnout time of four minutes was assumed for Station 4 and 5. As illustrated in the figure, the department is able to respond to 61% of high risk areas, 49% of moderate risk areas and 31 % of low risk areas within a total response time of 14 minutes. Community Risk Profile Page — I-44 / DILLON CONSULTING • I � Taunton 9 MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure I-8. Existing Risk and Response Historical Fire Call Uwation5 • FIRE STATION t RAILWAY FREEWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY TRAVEL TIME TO FIRE CALLS (2008-2012) . <=4min <=8min <=5min <=9min <=6min <=10 min • > 10 min RISK LOW RISK MODERATE RISK HIGH RISK - EXTREME RISK N SCALE 1 :100,000 W� 0 0.5 1 2 3 km SCALE I MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: JJA MAP CHECKED BY: SLC MAP PROJECTION: NAD 1963 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing Risk and Response - Historical Call Locations -c! 000- \\\\\\\\\\\\\\n PROJECT: 12-7214 DILLON STATUS: DRAFT CONSULTING DATE: 06/06/13 MUNICIPALITY OF GL RINGTOIII FIRE MASTER PLAN Figure I -y: Existing Lrhan Risk and Response (Geography) FIRE STATION t RAJLWAY HIGHWAY ARTERIAL COLLECTOR LOCAL WATEARDbY I MUNICIPALRQlJNOARY UFSAN BOUNDARY TRAVEL TIMES O4 MINUTES {g NE�RK SPEED 6 MINUTES Q NETWORK SPEED RISK LOW RISK MODERATE RISK H 3H F4$K - EXTREME RISK h ® O.v 1 2 3 krrn e s MAF ❑RAW ING INFDRIVIATION: DATA PROVIDED IRY THE MINICIPALITY DF CLARINGTON MAP CREATED 6Y- 56 MAPCHECKED Or 66 MAP PMWECTIO N: NAD 1983 UTM Zor 17N FILE LCKATIOW x.0450272`4-CI,xrI1+9L'7n FMF'A.iaPPnp. Exi3ttn0 RISK ars? Response - 4eograPnymxo ..�., yti5l4R DlL-0N CONSULTING PROJECT: 12-7214 STATUS -DRAFT [SATE: 04110143 MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 1-10: Existing Dural Risk and Response (Geography) • FIRE STATION RAILWAY HIGHWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY C3URBAN BOUNDARY TOTAL RESPONSE TIME O> 6 FIREFIGHTERS - 14 MINUTES @ NETWORK SPEED RISK LOW RISK MODERATE RISK - HIGH RISK - EXTREME RISK N 0 0.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SB MAP CHECKED BY: SS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:�GIS\127214 - Clarington FMR\Mapping\ Existing Risk and Response - Geography.mxd DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 04/10/13 MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure. I-11: Future Urban Disk and Response (Geography) • FIRE STATION RAILWAY HIGHWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY TRAVEL TIMES O4 MINUTES @ NETWORK SPEED O8 MINUTES @ NETWORK SPEED RISK LOW RISK L MODERATE RISK - HIGH RISK - EXTREME RISK N 0 0.5 1 2 3 km s s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SB MAP CHECKED BY: SS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing Risk and Response - Geogmphy.mxd DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 07/10/13 Lake Ontario MUNICIPALITY OF CLARINGTON FIRE MASTER PLAN Figure 1-12: Future Rural Risk and Response (Geography) • FIRE STATION RAILWAY HIGHWAY ARTERIAL COLLECTOR LOCAL WATERBODY MUNICIPAL BOUNDARY QURBAN BOUNDARY TOTAL RESPONSE TIME O> 6 FIREFIGHTERS - 14 MINUTES @ NETWORK SPEED RISK LOW RISK - MODERATE RISK - HIGH RISK - EXTREME RISK N O 0.5 1 2 3 km � s MAP DRAWING INFORMATION: DATA PROVIDED BY THE MINICIPALITY OF CLARINGTON MAP CREATED BY: SB MAP CHECKED BY: SS MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\127214 - Clarington FMP\Mapping\ Existing Risk and Response - Geogmphy.mxd DILLON CONSULTING PROJECT: 12-7214 STATUS: DRAFT DATE: 07/10/13 APPENDIX j Definitions of OFM Response Types SUMMARY: REPORTING RESPONSE TYPE ON THE ONTARIO OFM STANDARD INCIDENT REPORTW=.. WAS IT AN UNCONTROLLED RESPONSE TYPE CODES FIRE OR AN EXPLOSION? Response type codes: 1 or 2 If there is a fire and an explosion at an incident, report as an Explosion — code 2 OR NO LOSS OUTDOOR FIRE No loss: no fatality, injury and no $ loss. Outdoor: open land, trash container, etc. And not resulting in an exposure fire Response type code: 3 DID THE CALL OCCUR IN ANOTHER MUNICIPALITY AND THE LOCAL F.D. WAS PRESENT? Response type codes: 910 to 913 WAS IT A PRECONDITION TO AN UNCONTROLLED FIRE? (smoke, steam, fireworks, etc. no evidence of uncontrolled burning or fire damage) Response type codes: 21 to 29 WAS IT A CONTROLLED FIRE? The FD did not extinguish the fire. Response type codes: 23 or 36 DID THE CALL (non fire) OCCUR AT THE SITE OF AN ILLEGAL GROW OR DRUG OPERATION? Response type codes: 921 or 922 WAS IT A FALSE FIRE ALARM? Response type codes: 31 to 35 or 39 or FALSE CO alarm (NO carbon monoxide present)? Response type code: 37 Another type of FALSE ALARM? Response type codes: 58, 699, 899 WAS IT A CO CALL, and CO WAS PRESENT? Response type code: 53 NON FIRE SITUATIONS (use where none of situations noted above are applicable) What action did the fire department take? Rescue? Medical assistance? If no "action" codes are applicable: What was the type of emergency situation? (see shaded codes) DID ANOTHER AGENCY ALREADY ON THE SCENE REQUEST ASSISTANCE? Response type codes: 92 or 93 IF NO CODES fit the emergency action or emergency incident use Code 99 Other response. Do not file a report for non emergencv FD activities. Property Fires/Explosions 1 Fire J2 _1Explosion (exc. Codes 3, 11 to 13) 3 No loss outdoor fire (excluding arson, vandalism, children ! playing, recycling or dump fires) Overpressure rupture/explosion (no fire) 11 10verpressure Rupture (no fire, e.g. steam (boilers, hot water) - --------------------------------------- ;12 :Munition Explosion - (no fire, e.g. bombs, 'dynamites) 13 Overpressure Rupture - gas pipe (no fire) Pre fire conditions/no fire i21 iOverheat (no fire, e.g. engines, mechanical :devices) Ino fire) -----------,24Other Cooking(toasting/smoke/steam i fire) 25 (Lightning (no fire) 26 'Fireworks (no fire) 11 29 'Other pre fire conditions (no fire) Burning (controlled) 23 :Open air buming/unauthorized controlled burning (no uncontrolled fire) 36 Authorized controlled burning - complaint False fire calls 31 °AlarmSystemEquipment- Malfunction ;32 !Alarm System Equipment - Accidental ;activation (exc. code 35) 33 'Human - Malicious intent, prank 34 Human- Perceived Emergency i35 'Human - Accidental (alarm accidentally activated by person) 39 "Other False Fire Call CO False calls 137 CO false alarm - perceived emergency (no CO present) 38 CO false alarm - equipment malfunction (no CO present) :Public Hazard i 53 JC0 incident, CO present (NOT false alarm) 1 Gas Leak - Natural Gas 2 Gas Leak - Propane 43 JGas Leak - Refrigeration 44 Gas Leak - Miscellaneous .�45 ISpill - Gasoline or Fuel f 6 Spill - Toxic Chemical 47 ISpill - Miscellaneous 48 'Radio -active Material Problem 149 ;Ruptured Water, Steam Pipe bu rower Lines Down, Arcing THE INCIDENT LOCATION INVALID? 151 113omb, Explosive Removal, Standby Response type codes: 96 or 97 54 Suspicious substance 57 'Public Hazard no action required X58 ;Public Hazard call false alarm 59 10ther public hazard APPENDIX K Public and Stakeholder Online Survey Summary & Consultation Materials Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 Table of Contents Page K1.0 ONLINE SURVEY......................................................................................................................1 K2.0 METHODOLOGY......................................................................................................................1 K3.0 RESULTS FROM PUBLIC SURVEY COMPONENT................................................................1 K4.0 RESULTS FROM STAKEHOLDER / COMMUNITY GROUPS SURVEY................................5 List of Tables Table KI: Resident Use of Clarington Emergency & Fire Services in the Past.........................................1 Table K2: Alarmed for Life Program Visit in Previous 5 Years...............................................................2 Table K3: Awareness of Clarington Emergency & Fire Services.............................................................2 Table K4: Public Satisfaction of Level of Service................................................................................... 3 Table K5: Working Smoke Alarm in Home............................................................................................ 3 Table K6: Fire Safety Information Sources.............................................................................................4 Table K7: Stakeholder Use of Clarington Emergency & Fire Services in the Past .................................... 5 Table K8: Business / Community Assembly Inspection.......................................................................... 5 Table K9: Requested Inspection or Education Services........................................................................... 6 Table K10: Stakeholder / Community Group Satisfaction of Level of Service ......................................... 6 Page K -i DILLON t] )NslI ING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 K1.0 ONLINE SURVEY An online survey was conducted to collect and understand the public and community stakeholder experiences with the current services provided by the CEFS. Public and community stakeholder input is essential to the successful preparation of the Fire Master Plan. The results of this survey help to guide suggestions and recommendations throughout this Fire Master Plan document. K2.0 METHODOLOGY The online survey was designed and administered using SurveyMonkey web -interface. The survey was advertised at the Fires Services Master Plan Public Open House on June 11, 2013 and through a link and discussion page on the Municipality of Clarington website. The survey was available online from June 17'', 2013 through September 5t'', 2013. Using skip logic, the survey guided respondents to complete the survey in two components: (1) a public survey comprising residents of the Municipality of Clarington; or (2) a stakeholder / community groups survey polling business owners and participants of community clubs in Clarington. Depending on the respondent's relationship with the Municipality, they may have selected to complete only the public survey, only the stakeholder / community group survey, or both of the surveys. The survey was divided into these two components to identify the experience with the Clarington Emergency & Fire Services from these two unique user groups. As soon as a respondent began entering responses to the survey their participation was recorded, however they were free to exit the survey whenever they chose so in some instances the survey was not completed or not all questions were answered. K3.0 RESULTS FROM PUBLIC SURVEY COMPONENT Fifty-seven respondents identified themselves as residents of the Municipality of Clarington out of sixty- five that completed the public survey. Their responses are summarized below. Table KI illustrates the most recent occurrence that the respondents have used the emergency response services of the CEFS. The majority of resident respondents (30 of 54) have never used the emergency response services. Table KI: Resident Use of Clarington Emergency & Fire Services in the Past Selected Response Frequency Never 30 Yes, within the past 6 months 6 Yes, within the past 1 year 4 Yes, within the past 5 years 9 Yes, within the past 10 years 4 Yes, within the past 25 years 1 Online Public and Stakeholder Survey Results Summary m Page K-1 .00 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 Table K2 indicates that ten of fifty-four respondents had been visited by CEFS in the last five years for the Alarmed for Life Program. Table K2: Alarmed for Life Program Visit in Previous 5 Years Selected Response Frequency Yes 10 No 37 Unsure 7 Table K3 indicates the respondent awareness of different services provided by the CEFS. Most respondents were aware of all services. Respondents were least aware of land-based rescue. Table K3: Awareness of Clarington Emergency & Fire Services Service Aware Not aware Fire suppression (i.e., putting out fires) 53 1 Response to medical emergencies 53 1 Response to hazardous materials 49 5 Response to other perceived emergencies (e.g. carbon monoxide alarms) 51 3 Land-based water rescues 47 7 Response to motor vehicle accidents 52 2 Fire investigations 53 1 Fire code inspections 50 4 Public education events and programs 50 3 Table K4 indicates the respondent satisfaction with the level of service provided by CEFS. Most respondents (37 of 53) are `very satisfied' or `satisfied' with the level of service currently provided. Online Public and Stakeholder Survey Results Summary m Page K-2 .00 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 Table K4: Public Satisfaction of Level of Service Selected Response Frequency Very satisfied 19 Satisfied 18 Somewhat satisfied 11 Not satisfied 5 The Ontario Fire Code requires all single family, semi-detached and town homes in Ontario, whether owner -occupied or rented, have a working smoke alarm on every storey of the residence and outside all sleeping areas. Failure to comply with the Ontario Fire Code smoke alarm requirements could result in a ticket of $235 or a fine of up to $50,000 for individuals or $100,000 for corporations. The Ontario Fire Code specifies that "no person shall intentionally disable a smoke alarm so as to make it inoperable". This includes, but is not limited to, removing the battery. A tenant, or any other person, who intentionally disables a smoke alarm is guilty of a provincial offence and may be subject to a fine. Table K5 indicates that almost all respondents have a working smoke alarm on all storeys of their homes. Four had a working alarm on at least one floor, one was unsure, and no one answered to not having a working smoke alarm. Table K5: Working Smoke Alarm in Home Selected Response Frequency Yes, on all storeys 48 At least one 4 Unsure 1 No 0 Respondents have received public safety information form the CEFS from the sources indicated in Table K6. The most frequent sources of information are from presence at community events and pamphlets or mail -outs. Online Public and Stakeholder Survey Results Summary m Page K-3 .00 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 Table K6: Fire Safety Information Sources Information Source Frequency School programs 14 Radio announcements 4 Municipality / CEFS website 17 Television announcements 1 Presence at community events 25 Pamphlets or mail outs 21 Fire prevention week open houses at Fire Stations 12 Presentations by CEFS staff to public groups 10 Other (newspaper ads and/or articles) 5 NOTE: Frequency as selected by respondents. Each respondent could select multiple information sources. Comments on concerns or issues related to CEFS included: • Comments requesting additional full-time staff and/or additional fire halls, in particular at Newcastle; • One comment was that full time suppression staff are not required in Newcastle for a few years; • Ensuring there are enough firefighters to support a growing community; • Concern that staffmg of full-time apparatus is three per truck when the minimum should be four; • Concern that responding to medical calls is not an efficient use of resources. Suggested that smaller vehicles should be used and to monitor which vehicles respond to which types of calls. Comments on strengths of the CEFS included: • Excellent communications to Clarington residents and above average response time to emergencies; • Positive comments about attendance at community events, including interaction with youth and the junior firefighter program, open house, and being visible to the public; • Several positive comments about good response time. Online Public and Stakeholder Survey Results Summary m Page K-4 .00 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 K4.0 RESULTS FROM STAKEHOLDER / COMMUNITY GROUPS SURVEY Seven out of fifty-nine respondents identified themselves as a business owner in the Municipality of Clarington. Twenty-seven out of fifty-two respondents identified that they work, study or participate in a club or organization in Clarington. Their responses are summarized below. Table K7 illustrates the most recent occurrence that the respondents have used the emergency response services of the CEFS. The majority of respondents (16 of 31 respondents) have never used the emergency response services. Table K7: Stakeholder Use of Clarington Emergency & Fire Services in the Past Selected Response Frequency Never 16 Yes, within the past 6 months 5 Yes, within the past 1 year 6 Yes, within the past 5 years 2 Yes, within the past 10 years 1 Yes, within the past 25 years 1 Table K8 indicates if the respondents' business / community assembly had been inspected by CEFS and if so, when the most recent inspection occurred. The majority of respondents (20 of 31) indicated an inspection had not occurred or were unsure. Table K8: Business / Community Assembly Inspection Selected Response t Frequency Yes, within the past year 5 Yes, within the past 2 years 4 Yes, within the past 5 years 2 Unsure 10 No 10 Online Public and Stakeholder Survey Results Summary m Page K-5 .00 DILLON CONSULTING Municipality of Clarington Fire Master Plan Appendix K - Online Public and Stakeholder Survey Results Summary February 2014 Table K9 indicates that two of 30 respondents have never requested inspection or education services from CEFS. Table K9: Requested Inspection or Education Services Selected Response Frequency Yes 2 No 28 Table K10 indicates the respondent satisfaction with the level of service provided by CEFS. The majority of respondents (14 of 29) are `satisfied' with the level of service currently provided. Table K10: Stakeholder / Community Group Satisfaction of Level of Service Selected Response Frequency Very satisfied 10 Satisfied 14 Somewhat satisfied 3 Not satisfied 2 Comments on concerns or issues related to the CEFS included: • Lack of staffing; • Response in Orono took a while; • Size of fire trucks used on calls when they are not required; and • We don't need any more full-time firefighters. Comments on strengths of the CEFS included: • Opening up door to teach young people about safety; • Education through the schools; and • Active in the community. Online Public and Stakeholder Survey Results Summary m Page K-6 .00 DILLON CONSULTING 1W Clarington Fire Master Plan WELCOME Clarington Emergency and Fire Services welcomes you to this Community Information Open House. We would like to hear what you think about this Fire Master Plan study and invite you to ask us questions and provide us with your comments. Please fill in a comment sheet provided and place in the box on the table or fax/email your comments on or before Tuesday, June 25, 2013. The Municipality of Clarington has undertaken a Fire Master Plan study to review municipal fire protection services and develop a master plan to guide the emergency and fire service as Clarington continues to grow, develop and evolve. The study includes a review the following department components: • Administration • Fire Prevention • Public Education • Training • Staffing and Agreements • Station Locations • Emergency Response • Emergency Planning • Mechanical, Apparatus and Equipment Clarington Fire Master Plan r t1 Rt;SCUE ONTARIO FIRE SAFETY & PROTECTION MODEL: THREE LINES OF DEFENCE 1. Public Education and Prevention Smoke Alarm Program, school and seniors education, fire escape planning, risk management, etc. 2. Fire Safety Standards and Enforcement Inspections, occupancy inspections, licensing approval, violation enforcement, fire investigations, etc. 3. Emergency Response • Office of the Fire Marshal Ontario (OFM) Public Fire Safety Guidelines • National Fire Protection Association (N FPA) Standards • Ministry of Labour (Section 21 Guidance Notes) • Industry Best Practices RESPONSE STATISTICS o Call Volume by Year Call Volume by Type f®, — ■■■S■ �� Clarington Fire Master Plan BACKGROUND INFORMATION / EXISTING CONDITIONS Mission Statement: "To ensure we deliver service excellence through public education, prevention, training and emergency response." Municipality of Clarington Population of approximately 85,000 Major communities include Bowmanville, Courtice, Newcastle and Orono Predominantly rural and agricultural surrounding community centres Experiencing residential infill development and growth as a result of location within the Greater Toronto Area. Experiencing sustained growth Clarington Emergency and Fire Services Staffing Fire Chief 1 Training 2 Deputy Chief 2 Maintenance 1 Admin Personnel 2 Suppression (full-time) 52 Fire Prevention 4 Suppression (volunteer) 125 �� Clarington Fire Master Plan COMMUNITY RISK PROFILE INTRODUCTION The Office of the Fire Marshal, Ontario's (OFM) Fire Risk Sub -model introduces the importance of community risk in the following paragraph: `Assessing the fire risk within a communityis one of the seven components that comprise the Comprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing the relevant factors that characterize the communityand applying this information to identify potential fire risk scenarios that maybe encountered. The assessmentincludes an analysis of the likelihood of these scenarios occurring and their subsequent consequences.' Proactive risk management is an effective tool within the fire master planning process. Identifying and assessing these risks is key to determining the needs and circumstances of the community and should therefore be taken into consideration when planning the future programs and resources provided by the fire services. The risk profile is used to assess the current level of fire protection services provided, and identify where if any potential gaps exist. The Fire Master Plan recommends strategies to address these potential gaps. �Clarington Fire Master Plan NEXT STEPS Public Input: • Are you satisfied with the level of service provided for the following? — residential, commercial and/or industrial areas (emergency response, etc.) — fire prevention initiatives (inspections, pre -planning, etc.) — public education events, programs and information — medical call responses • Do you have any specific concerns related to the emergency & fire service? • Do you have any ideas how service delivery could be improved? WE THANK YOU FOR YOUR PARTICIPATION Clarington Fire Master Plan Community Information Open House June 11, 2013 Presented by Steve Thurlow Dillon Consulting Outline ✓ Introduction to Fire Master Plans ,/Municipal Responsibilities ✓ Performance Measures ✓ Current Study Scope ✓ Department Background ✓ Next Steps ✓ Questions & Discussion .V DIMON co—U L 1— C 1 What is a Fire Master Plan? ✓ Comprehensive evaluation of all current services in relation to relevant legislated standards and best practices. ✓ An opportunity to identify alternative service delivery options based on evidence supported analyses. ✓ Creation of a strategic, multi-year plan to deliver service based on the "needs and circumstances" of the community. DIMON CONSVILCING Benefits of a Fire Master Plan ✓ Provide Council and staff with a strategic template for delivering emergency & fire services in response to community risks and needs over the next 5 - 10 years. ✓ Ensure Clarington is addressing legislated responsibilities / requirements ✓ Opportunity for public & stakeholders to participate in developing service level performance targets and measures. f 1:)IIA-ON GU�1'Si:IL[lil'(: I- � ff ti �1QN 2 Ontario Fire Safety & Protection Model Three Lines of Defence: 1. Public Education and Prevention i. Smoke Alarm Program, school and seniors education, risk management, etc. 2. Fire Safety Standards and Enforcement i. Inspections, Occupancy Inspections, Licensing Approval, Violation Enforcement, Fire Investigations, etc. 3. Emergency Response i. Ontario Fire Marshal's Office Guidance Notes ii. National Fire Protection Association Standards (NFPA) iii. Ministry of Labour (Section 21 Guidance Notes) iv. Industry Best Practices DIMON CO -U-1- Municipal Responsibilities DILLON CONSULMNU Fire Protection and Prevention Act 1997 (FPPA) states that every municipality shall: (a) Establish a program for 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. 3 (a) Establish a Program for P Education At a minimum this should include: - Simplified Risk Assessment — to identify the extent of other fire protection services. - A smoke alarm program. - Fire safety education activities distributed to residents/occupants. - Inspections upon complaint or when requested to assist with code compliance. (b) Provide Other Fire Protec Services Services should include: - Identifying the level of fire protection (suppression) services the municipality deems necessary based on its own "needs and circumstances" - Determining this through evaluating factors such as. fire risk, liability, financial capabilities, resources, and community and council expectations. DIMON CONSV-1— COo45V L:[1 a Methodology ✓ Conduct high-level review of overall emergency and fire services department: • Industry best practices • Office of the Fire Marshal, Ontario (OFM) public fire safety guidelines • National Fire Protection Association (NFPA) standards ✓ Consideration of variety of options ✓ Short term (1-5 year) & long term (5-10year) recommendations / implementation plan ✓ Align with municipal plans & strategies ✓ Tailor study to meet local needs and circumstances Study Scope Comprehensive review of: ✓ Administration, governance, etc. ✓ Operating guidelines & policies ✓ Staffing and training requirements ✓ Fire prevention & public education ✓ Apparatus, equipment & maintenance ✓ Fire station locations & conditions ✓ Department succession planning ✓ Communications & technology ✓ Contract services ✓ Community emergency management DILL ON co—U-1— Study1— DILLON CONsdur NG 5 Emergency Response Measure Total Response Time: Is comprised of three primary components: ✓ "Dispatch time": Time to receive and dispatch the call. ✓ "Turnout time": Time required for firefighters to react and prepare to respond. ✓ "Travel time": Actual travel time from the fire station to the incident Emergency Response Measure First Response: The National Fire Protection Association (NFPA) Standard - 1710 refers to a first response as the "Initial Arriving Company" of four firefighters able to commence a limited rescue or fire suppression. DIMON CONSV-1- E)rLJLON C... L:[INO s Emergency Response Measur / DIMON CONSVILCING Depth of Response: NFPA Standard 1710 refers to the depth of response as the "Initial Full Alarm Assignment" responding to a structure fire in a typical 2000 ft2 two storey single family dwelling with no basement and includes a minimum staffing of 14 firefighters, plus 1 additional firefighter if an aerial device is required. Emergency Response Measure DVUWN Performance Measures Measure NFPA 1720 (Volunteer Departments) Urban Area Minimum Staff: 15 (>1000 people/ Response Time: 9 minutes square mile) Meets Objective: 90% Suburban Area Minimum Staff: 10 (500-1000 people / Response Time: 10 minutes square mile) Meets Objective: 80% Rural Area Minimum Staff: 6 (<500 people / Response Time: 14 minutes square mile) Meets Objective: 80% Department Background - Sta Historical Call Call Volume by Year 0 i OI LEON Col��sl�Li I\C: Station #1 Bow ville: 2430 Hwy 2 Statio #2 Newcastle: 247 King Avenue East (Relocation to 3333 Highway 2) Station #3 Orono: 5708 Main Street Station #4 Courtice: 2611 Trulls Road Station #5 Enniskillen: 2354 Concession Road 8 L7ILIA co-- Call Volume by Type 840 ' ■ aoos soo ■ zms m0 — ■zm0 7W — ■zmi 000 ■zmz so0 eoo aw. — . ■=�.._ — Fire Me ical Mn U11 Type 8 Community Risk Profile Analysis of eight key risk factors including: ✓ Property stock, ✓ Building height and area, ✓ Building age and construction,- onstruction,Building Buildingexposures, ✓ Demographic profile, u lip ✓ Geography/topography/road network; ✓ Past fire loss statistics, and - ✓ Fuel load. Existing Risk Mod DIMON CONSVILCING 9 Next Steps ✓ Review public and stakeholder input ✓ Present preliminary findings project team ✓ Complete divisional, station response and community risk analyses ✓ Present draft report to project team ✓ Present final report to Council for J consideration & approval [�J 10 Public Input DILLON CONSU-1- ✓ Are you satisfied with the level of service provided for the following? • residential and/or industrial areas (emergency response, etc.) • fire prevention initiatives (inspections, pre -planning, etc.) • public education events, programs and information • medical calls ✓ Do you have any specific concerns related to the emergency and fire services? ✓ Do you have any ideas how service delivery could be improved? Public Input WrOF DIUL ON CONSUUPIN¢ Please provide feedback on the comment forms provided or by email at scharbonneau(&dillon.ca An online survey is also available at httl2://www.surveymonkey.com/ /8 N B6C9V 11 Questions? 12