HomeMy WebLinkAboutFD-1-93 Y
THE CORPORATION OF THE TOWN OF NEWCASTLE
REPORT
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE File #
Date: JANUARY 18, 1993 Res. #_Cpr_�- 4
Report#: FD-1-93 File#: 10 . 12 . 6 By-Law#
Subject: OFFICE OF THE FIRE MARSHAL'S DISCUSSION PAPER - "ON-SITE
STAFFING"
Recommendations:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. ) THAT Report FD-1-93 be received; and
2 . ) THAT the Ontario Fire Marshal's Office be thanked for their
discussion paper and advised that the manner of staffing
levels be determined by the Municipal Fire Department based
on its composition and available resources .
1. BACKGROUND
1. 1 At the Council meeting of November 9, 1992, Council received
a discussion paper from the Office of the Fire Marshal. This
discussion paper dealt with on-site staffing at the scene of
a fire emergency.
1.2 The Office of the Fire Marshal's discussion paper
recommendations were based on the scenario of a fire in a
single family, two-storey, detached home. It dealt with the
number of firefighters needed to safely handle such an
emergency.
1.3 The recommendations in the discussion paper were based on a
limited amount of research and will be followed up with on
scene testing, further studies and scenarios .
1.4 The discussion paper has been sent to various municipalities
as well as various associations, including the Fire Chief's
Association, Fire Department Training Officers ' Association
and Fire Prevention Officers ' Association.
Continued. . . . .
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FD-1-93 - 2 -
2 . COMMENTS
2 . 1 The discussion paper recommends that an initial response crew
of four firefighters, including an officer, arrive at the
scenario being used, that being a fire in a single family,
two storey, detached home. This crew would perform various
duties including limited rescue and fire suppression.
2 .2 It also recommends that extensive rescue and interior fire
attack not take place until a minimum of ten firefighters,
including officers, are assembled on the scene. It leaves the
manner of assembling the ten person crew to the department,
based on its composition and resources.
2 .3 The Town of Newcastle is presently able to comply with the
recommendations through the use of it's full time crews
supported by part-time firefighters in the day time and by the
use of part-time firefighters at night.
2 .4 At times, the full time crews are down to three firefighters,
due to vacation time and sick leave. To ensure the initial
four firefighter response, it will require a senior officer
(Chief or Deputy Chief) to respond as a member of the four
person crew. This is presently the manner in which we operate
for any serious emergency.
2 .5 To ensure the ten firefighter crew being assembled at the
scene to allow for a safe interior attack, we are required to
send the crews as follows:
6:00 a.m. to 6:00 p.m. daily
1. ) In Bowmanville or Courtice - both full time crews would
respond, supported by the appropriate part-time station. This
should allow for the required staffing level to be attained.
2 . ) In Newcastle, Orono, Enniskillen and other rural areas -
the area station (i.e. Orono) as well as the nearest second
station and the full time crew from Bowmanville, as well as
a senior officer would respond. This allows for the
recommended staffing levels and needed vehicles and equipment
to be assembled at the scene of the emergency.
6 :00 p.m. to 6:00 a.m. daily
All areas are covered by responding the area station and the
nearest second station and a senior officer is also
dispatched. On arrival, if the need arises, a third station
will be dispatched to ensure the required levels of staffing
and equipment, including water for firefighting, are
available.
Continued. . . . .
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FD-1-93 - 3 -
2 . 6 It would appear that the Town of Newcastle currently complies
with the recommendations of the Fire Marshal's discussion
paper and it could therefore be supported. It is essential
that the support of the recommendations be based on the manner
of assembling the required staffing levels being left up to
the Municipal Fire Department, based on its resources and
composition.
2 .7 The survey, which has recently been completed by the Office
of the Fire Marshal has, in itself, made recommendations on
assembling the needed staffing levels at various emergencies
and will be evaluated to ensure that the Newcastle Fire
Department functions in the most effective manner possible.
2 . 8 A summary of the discussion paper is included as Attachment
#1 for committees information. The complete discussion paper
is available at the Clerk's Office should anyone wish to view
the entire documents .
3. RECOMMENDATIONS
3 . 1 It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council that Report FD-
1-93 be received.
3 .2 That the Office of the Fire Marshal be thanked for their
discussion paper.
3. 3 That they be advised that the Town of Newcastle generally
concurs with their recommendations regarding on-site staffing
levels .
3.4 That the manner of assembling these staffing levels be
determined by the Municipal Fire Department based on its
composition and available resources .
Respectfully submitted, Approved for presentation to
Committee
4YuJr
Michael G. Cr ighton, AMCT(A) ,CMMI Lawrence E. KotsfEf,
Fire Chief. Chief Administr4t*ve Officer.
MC/sr
Att. #1
November 16, 1992 .
ATTACHMENT #1
SUMMARY OF DISCUSSION PAPER
The issue of the number of firefighters assigned to a vehicle has
been the subject of discussion for many years . The approach of
this discussion paper is to establish the number of firefighting
personnel required to safely and properly handle the situation they
are required to respond to.
The Fire Marshal's Office has initiated a major research project
which will lead to a Comprehensive Fire Safety Effectiveness Model
for residents of Ontario. The completed model will enable
municipalities to evaluate their own circumstances, maximize the
effectiveness of their fire protection services and ensure an
appropriate level of health and safety for their firefighters .
The overall objective of any fire department is to provide its
community with the optimal level of protection from fire and other
related public safety while at the same time ensuring an
appropriate level of health and safety for the firefighters.
Recognition must be given to the changing expectations being placed
on the fire service, and to differences in local needs and
conditions, including the way in which the fire department is
organized.
The staffing recommendations included in this paper are for a
single family, two storey, detached home. These staffing levels
may also satisfy requirements for other fire department services,
such as auto extrication. Departments must also consider the
impact that providing additional services may have on their ability
to respond to the primary concern, the protection of life, property
and the environment from the effects of fire.
The purpose of the discussion paper is to provide a framework for
dialogue with stakeholders. This must be done in consideration of
the needs of various communities, the way in which fire services
have been organized in each community and the circumstances in
which municipalities and fire departments operate.
This discussion paper outlines:
1. ) Factors which determine the effectiveness of a municipal fire
protection program.
2 . ) Factors which determine the effectiveness of a fire
department's response to a specific emergency.
3. ) Capabilities and limitations of crews of three, four, five
and six firefighters, when operating a pumper at a fire in a
single family, two storey, detached home.
Continued. . . . .
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Cont Id. - 2 -
4 . ) Issues associated with the assembly of firefighters at the
scene of an emergency.
5 . ) Preliminary Ontario Fire Marshal's position with regard to
dispatch, on-scene assembly and the resources required to
undertake interior firefighting operations.
6 . ) Additional research required in the development of the
Comprehensive Model.
It is recognized that fire department effectiveness, the level of
service provided to the community and firefighter safety are
inextricably linked. A municipal council determines the resources
that will be provided to its fire department. The fire department
has an obligation to utilize those resources to provide the highest
possible level of service which can be safely and effectively
delivered to the community.
The Comprehensive Fire Safety Effectiveness Model is designed to
provide a municipality with a benchmark against which to asses and
enhance their existing fire protection services . Eight key factors
affect fire loss in Ontario, as follows:
1. The impact of fire: Fire results in death, personal injury
and property loss. Property loss can affect the local economy
due to tax losses, etc. Fire may also have a negative
psychological impact, but this is not considered in the scope
of this study.
2 . Fire Prevention Program effectiveness: Legislation, codes 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 from
fire.
3 . Public attitude: It is generally believed that North
Americans tend to be more complacent about fires and the
resulting losses, than other parts of the industrialized
world.
4 . Fire risk: The characteristics of individual communities will
affect the fire risk to be protected against. For example,
older buildings pose a different set of problems than new
buildings built to modern construction codes .
5. Detection capabilities: Fire detection devices provide
occupants with early warning and time to escape and allow for
earlier fire department notification, thus reducing the impact
of the fire.
Continued. . . . .
Cont d. - 3 -
6 . Built in suppression capabilities: Built in suppression
systems such as automatic sprinklers control fire spread and
growth and reduce the effects of fire and allow the fire
department to extinguish the fire more quickly.
7 . Intervention time: For the purpose of this Model intervention
time is the time from ignition of the fire until effective
firefighting streams can be directed on the fire. This
includes detecting the fire, notifying the fire department by
the public, notifying firefighters, preparation to leave
station by firefighters, travel time from the station to the
scene of the fire, travel restriction (traffic, traffic
signals) , weather and road conditions (i.e. rural roads,
etc. ) , set up time and entry.
8. Fire department on-site effectiveness: This effectiveness
affects the degree of damage to the environment, property
loss, personal injury and death from fire.
APPLYING THE COMPREHENSIVE FIRE SAFETY EFFECTIVENESS MODEL
On the attached chart, each factor is given a value:
Chart 1 depicts a situation in which the combined impact of
the factors which make up the Comprehensive Model achieve the
ideal level of fire protection.
Chart 2 shows a less ideal level of fire protection that might
be found in a particular situation. This shows the ideal
levels are not achieved since various areas are not
sufficient.
Chart 3 shows how strengthening one or more of the factors may
enhance the ability to reduce losses due to fire.
FIRE DEPARTMENT ON-SITE EFFECTIVENESS SUB-MODEL
The dealing of on-site suppression activities is one component
of the Comprehensive Model. It is influenced by many factors
and understanding these factors is essential to assessing the
prompt, efficient, effective and safe delivery of services.
The goal of the fire service is to provide a level of service
that is capable of minimizing loss of life, injury and damage
to property and the environment.
The following factors have an impact:
1. Fire Risk/Fire Demand: The circumstances that the fire
department may encounter and the demand for services .
Continued. . . . .
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APPLICATION OF THE COMPREHENSIVE MODEL
DETECTION IMPACT OF FIRE
Chart 1:
FIXED SUPPRESSION ATTITUDE 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
FIRE PREVENTION total level of protection provided to
EFFECTIVENESS FIRE RISK a community.
FIRE DEPARTMENT l
INTERVENTION TIME SUPPRESSION
DETECTION
FIXED SUPPRESSION IMPACT OF FIRE
Chart 2: FIRE PREVENTION
EFFECTIVENESS
This chart shows how the
comprehensive model can be INTERVENTION TIME I i�
applied to a typical flre department
The "gap" depicts the difference FIRE DEPARTMENT SUPPRESSION GAP
between the existing level of
protection and the Ideal.
FIRE RISK
ATTITUDE
FIXED SUPPRESSION
` Chart 3:
FIRE PREVENTION �::
EFFECTIVENESS DETECTION
y` This chart shows how the "gap" can
INTERVENTION be reduced by strengthening a
TIME number of factors In order to
Increase the overall level of
FIRE DEPARTMENT protection provided to the
SUPPRESSION p p
IMPACT OF FIRE community.
FIRE RISK
ATTITUDE CAP
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Cont d. - 4
2 . Response Time: For the model the Ontario Fire Marshal defines
the response time to include pre-burn, dispatch time,
preparation time and travel time.
3 . On-site suppression staffing: On-site staffing refers to the
number and assembly of firefighters at the scene of an
emergency. It includes:
first crew arriving and initial operations
additional staff arriving on scene, after first crew
time and sequence of arrival of each group
4. Firefighter performance: Efficiency is measured on an
individual basis, is influenced by training, physical fitness
and equipment. Measured on a group basis, team performance
can be affected by the cohesiveness and level of co-ordination
found at the scene of a fire.
5 . Fire Ground Command and Control: The ability to communicate
information and direct on-scene command operations is crucial
to the successful outcome of a fire operation.
6 . Operational Guidelines: Procedures followed by firefighters
in responding to a specific situation provides the framework
for an orderly and efficient delivery of suppression services.
7 . Firefighter safety: All fire ground operations must be
conducted in such a manner that will not jeopardize
firefighter safety while at the same time, making optimum use
of available resources .
8. Apparatus and Equipment: Apparatus and equipment must
correspond to the demands of the on-site sub-model.
9 . Water Supply: The availability of a reliable water supply
directly influences the effectiveness of suppression
activities .
10 . Availability of Fire Suppression Staffing: The number of
staff assembled at a scene and the time required are affected
by the availability of personnel. Factors that affect this
availability are:
- composition of the department
- number of firefighters on duty at the time of the emergency
- response of on-duty staff to other emergencies
- firefighter working arrangements
- personal and employment responsibilities of volunteers
11. Fire Prevention and Public Safety Education: The level of
building protection, fire prevention activities and the
public 's knowledge and attitude toward fire safety can
significantly reduce the frequency and severity of fires .
Continued. . . . .
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Cont Id. - 5 -
ON-SITE FIRE ATTACK TEAMS
The operations carried out on scene will depend on the size of the
responding crew.
3 person crew - Interior rescue and suppression should not be
attempted except in limited circumstances .
They should establish fire ground command,
size-up and complete a single task such as
water supply, laying hose, etc .
4 person crew - This would allow for tasks of 3 person crew
until water supply is available then allow for
2 person search and rescue team with no hose
line or 2 person interior fire attack, or other
minor operations .
5 person crew - Can provide an enhanced level of efficiency.
They can take a hydrant line and still conduct
the activities of a 4 person crew
simultaneously.
6 person crew - Can conduct activities of a smaller crew plus
provide a second 2 person rescue team or
provide a 2 person rescue team and simultaneous
2 person suppression team.
It must be noted that 1 person from the crew, no matter what size
crew, will be a driver and responsible for the proper operation of
the pumps, etc .
ASSEMBLING THE ON-SITE FIRE ATTACK TEAM
Assembly at the scene will vary depending on the make up of
a particular department. Departments in Ontario can be either
full time, composite or volunteer.
The type of department, which a community has, will dictate
how the attack team can be assembled.
Full time department will dispatch several stations or
vehicles, depending on their complement at any given time.
Composite departments will dispatch available full time staff
then augment them with volunteers .
Volunteer departments will rely on the availability of
volunteers and may require mutual aid assistance should their
firefighter availability be limited.
Continued. . . .
Cont Id. - 6 -
CONCLUSION
Research conducted to-date, indicates a wide range of complex
issued, which impact a fire department's effectiveness and
firefighter safety. Valid conclusions can only come from
comprehensive testing, simulations and field studies .
Never the less, the Ontario Fire Marshal 's analysis to-date,
has enabled them to reach preliminary positions regarding
appropriate staffing levels when executing a response to a
typical single family, two storey, detached home, which is
common to every community. Responses to this type of
occupancy accounted for approximately 35% of all fire alarms
and 45% of all fire related deaths in Ontario in 1989 .
In a case where a fire department is to execute interior
firefighting activities in this type of occupancy the
following conditions should apply:
1. A first group of responders of no less than four firefighters,
including an officer, must arrive, assemble and prepare to
operate as a team at or prior to flashover. (Flashover is the
point at which sufficient vapours are given off by a
combustible and sufficient heat exists to rapidly ignite the
vapours causing the interior of a room or structure to become
heavily involved in fire) .
2 . A total of no less than ten firefighters, including officers,
and if possible, a minimum of two vehicles, one of which is
a triple combination pumper, must assemble at the scene.
i
3. The fire department must define, in advance, how both the
initial group and total complement will be assembled and
managed according to local conditions, resources and
circumstances .
4 . For interior fires gaining in intensity, crews of less than
four firefighters should not attempt interior suppression or
rescue operations except in limited circumstances. (Victim
collapsed in close proximity to window or exterior doorway,
or fire is confined to a very small, readily accessible area) .
Various organizations have already taken a stand on the staffing
levels . Firefighters ' organizations recommend a minimum of five
firefighters, including an officer on a pumper.
The International Fire Chiefs ' Association feels that staffing
levels must be a local decision based on conditions and
flexibility.
Ontario Fire Chiefs are still to be heard from and have not yet
taken a stand on the issue, but are reviewing the discussion paper.
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