September 13, 2017 MASTER FIRE PLAN 2017

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1 September 13, 2017 MASTER FIRE PLAN 2017

2 City Council s Vision: Our vision for the future is for St. Catharines to be the most dynamic, innovative, sustainable and livable city in North America. Fire Services Mission: To serve and protect the citizens of St. Catharines from the ravages of fire, to prevent their property from becoming less valuable, and to allow for a continued quality of life through a knowledge of fire safety.

3 Table of Contents Executive Summary... 4 Background Project Goals and Objectives... 8 Scope, Criteria and Methodology Ontario Fire Protection Model Three Lines of Defence Determination of Risk Fire Protection Services Authority and Responsibility Analysis and Recommendations Establishing and Regulating By-Law Administrative Services Fire Prevention Training and Development Division Emergency Response and Operations Communications Station Location and Condition Assessment Fleet Services Next Steps Recommendations Summary Implementation Financial Considerations FEMS MASTER FIRE PLAN

4 Executive Summary The City of St. Catharines initiated a Master Fire Plan (MFP) to evaluate the current capacity of Fire and Emergency Management Services (FEMS), to support the City s Strategic Plan, and address current and future risks in the community. The Master Fire Plan identifies a number of recommendations that, if implemented, strengthen the overall fire protection delivery system. Master Fire Plans are considered a blueprint for local fire protection that address all legislative and regulatory requirements while taking into account the community s capability to fund and support the level of service determined by City Council. Annual business and/or operational planning should be part of the benchmarking of the implementation of the approved Master Fire Plan. The Municipality is responsible for providing fire protection services, as articulated in the Fire Protection and Prevention Act (FPPA). By completing and implementing a Master Fire Plan, Council will continue to demonstrate that it is taking the necessary steps to provide fire protection services based upon risk. The intent of the plan is to enhance the delivery of Fire Services for residents and visitors presently and into the future. This report identifies risks and evaluates the current capabilities of FEMS based upon the three lines of defence as defined by the Office of the Fire Marshal and Emergency Management (OFMEM): 1) Public Education 2) Inspection and Code Enforcement and 3) Emergency Response The significant findings of the Master Fire Plan, based upon the completed evaluation are: 1. A comprehensive risk based approach to the delivery of all components of the fire protection service should be used as a continuous, proactive and systematic process to understand, manage, and communicate risk from an organization-wide perspective. It is about making strategic decisions that contribute to the future of FEMS. 2. To ensure timely arrival of emergency personnel, appropriate level of staffing and equipment, as well as maintenance and renewal of infrastructure is a priority. 3. Additional personnel and resources are required to manage ever increasing workloads, legislative requirements, and the scope of programs delivered as proposed by the department, as well as to keep pace with any proposed growth in the City as a whole.

5 The risk to the City, as faced by all other communities and demonstrated in this Master Fire Plan, is two-fold: 1) Community risk due to fire and other emergencies and 2) Organization risk Understanding the specific risks associated with the delivery of fire protection services, and developing the means to address those risks is fundamental to providing fire protection services. As part of the Master Fire Plan each component of the fire protection delivery service was analyzed against a set criteria and the risk to the community. Recommendations have been developed based on this analysis in order to ensure FEMS continues to provide the optimal level of effective and efficient services in the community. As a result, the MFP includes 16 recommendations. Recommendations: 1) Review and specify the services and level of services provided by Fire Services as part of the mandated update to the Establishing and Regulating By-law. Priority Level: Immediate. 2) Monitor all duties and responsibilities, moving forward, as the current administrative workload is approaching capacity. Priority Level: Ongoing monitoring and review. 3) Continue the current practice to review, revise and implement fees for service on an annual basis or as required by FEMS management team. Priority Level: Ongoing monitoring and review. 4) Integrate other Corporate software programs to ensure connectivity and retention requirements are being met, where possible, following the full implementation of Firehouse software. Priority Level: Ongoing monitoring and review. 5) Hire one additional person to assume the position of Community Emergency Management Coordinator (CEMC) for the City of St. Catharines. Priority Level: Immediate. 6) Hire one full-time dedicated Public Educator for the Fire Prevention Division. Priority Level: Immediate. FEMS MASTER FIRE PLAN

6 7) Promote an existing person to enhance the current two platoon system by having a Fire Prevention Officer (FPO) assigned to each platoon. Priority Level: Ongoing monitoring and review. 8) Hire one full-time person dedicated to plans and site review in the Fire Prevention Division to support Planning and Building Services. Priority Level: Ongoing monitoring and review. 9) Hire one additional Training Officer to the Training Division to meet the needs identified through the full-time equivalent analysis. Priority Level: Ongoing monitoring and review. 10) Increase the staff complement in Suppression by 16 personnel with a staged implementation plan over four years. Priority Level: High 11) Set the current response time criteria to that of NFPA 1710 standard which recommends a response time of 6 minutes and 20 seconds 90% of the time. Priority Level: Immediate. 12) Hire one Communicator with GIS/CAD capabilities to bring the staffing complement to six persons per platoon. Priority Level: Immediate. 13) Maintain current building replacement schedule as defined in the Corporate asset management replacement program with priority given to renovations to Station 1 which would allow for the relocation of one aerial. Priority Level: Ongoing monitoring and review 14) In 2019, construct a new Training Tower as forecasted in the Capital Budget. Priority Level: Immediate. 15) Maintain the current Fleet Vehicle Replacement Schedule as created by Finance through a Reserve Fund which accumulates annually through the Operating Budget. Priority Level: Ongoing monitoring and review. 16) Maintain two dedicated mechanics within their own association to oversee all FEMS vehicles and apparatus and work with City staff in the design of the repair facilities at City yards for repair and maintenance of fire apparatus. Priority Level: Ongoing monitoring and review. Conclusion While the present fire protection delivery service is efficient and effective, current capabilities should be enhanced to provide for a level of service consistent with the needs and circumstances of the community.

7 The recommendations presented in this report are the result of: 1) Analysis of simplified risk assessment 2) Consideration of current and future capabilities 3) Identification of ways to address risks and/or improve services The Master Fire Plan Committee has consensus that the recommendations within this report will enhance services and should be recognized as priorities by the City of St. Catharines. Understanding that some of the recommendations require financial investment, the Committee has suggested an implementation schedule which uses a phased-in approach to allow for future planning. As well, the Committee recommends an annual review of the plan to follow up on recommendations, including those listed as important for monitoring and ongoing review. The MFP Committee is confident that the recommendations presented before Council, if approved, will ensure fire protection services are delivered in a way that reflects the current and future needs of the community by reducing the risk to lives and property loss. FEMS MASTER FIRE PLAN

8 Project Goals and Objectives St. Catharines Fire and Emergency Management Services (FEMS) Mission Statement: is to serve and protect the citizens of St. Catharines from the ravages of fire, to prevent their property from becoming less valuable, and to allow for a continued quality of life through a knowledge of fire safety. The Beginning On November 16, 2015, St. Catharines City Council approved the Master Fire Plan (MFP) process. The St. Catharines MFP will recommend service levels in accordance with the city s needs and circumstances, as required by the Fire Protection and Prevention Act (1997). The plan provides information and recommendations to enable Council to make informed decisions on the future of fire services in St. Catharines. A strategic MFP was commissioned by Council in 2008 and a Steering Committee was charged with the task of producing a five year plan intended to provide a structure and strategic direction for the service within the financial parameters of the community. The initial strategic MFP was established with the understanding that the recommendations would be reviewed and implemented during the five year timeframe. The 2008 MFP was presented to Council, however, it has not been revisited nor reviewed since its release. The current MFP incorporates the status of all recommendations from the 2008 report. The Fire Protection and Prevention Act (FPPA) places responsibility on municipal Councils to determine the level of fire protection services provided. Clauses 2. (1)(a) and 2. (1)(b) of the Act outline legislated municipal requirements, which at a minimum include public fire safety education and fire prevention. Furthermore, in accordance with the FPPA, the role of the Fire Chief is to advise Council on the delivery and capabilities of the fire service to provide core services to the community based on a municipal risk assessment. The role of Council is to determine and establish the level of service for the delivery of these fire protection services.

9 The intent of this plan is to provide Council with the appropriate information required to understand the needs, risks and capabilities of the fire department in both the short and long term by: Determining the municipality s fire protection needs and circumstances; Assessing the following: o Comprehensive Community Risk Assessment o Administration o Public Education o Fire Prevention o Training and Professional Development o Emergency Response and Operations o Communications o Fleet Services o Station Location Identifying and analyzing service delivery gaps noted when comparing the community s fire risk with the FEMS capabilities and current service levels; Identifying options or recommendations for developing and delivering services through efficient and effective use of all resources and a long-term budgetary plan that is acceptable to the community; Developing a Station Location review that will identify requirements for current facilities based on growth, emergency response time, intensification, and building stock; Aligning our future outlook with the overall strategic priorities identified within the 2015 Strategic Plan for the City of St. Catharines; Providing an implementation strategy and/or schedule to serve as a management monitoring tool to ensure goals are achieved within the prescribed time frames; Establishing a Master Fire Plan Advisory Committee to address and identify any changes to community risk, capabilities and legislative responsibilities that may affect the 2017 Master Fire Plan. This report contains the findings and recommendations identified by the St. Catharines Fire and Emergency Management Services MFP Committee. FEMS MASTER FIRE PLAN

10 Scope, Criteria and Methodology Criteria The MFP Committee used a risk based approach to develop the plan for the municipality. Subcommittees were developed with specific criteria to be examined and analyzed. The subcommittees reviewed options and developed recommendations for Council. Three main areas were measured: Community Risk; Organizational Risk, and; Current Capabilities to address current and future risks. The MFP criteria is based on expectations, reasonability and attainable standards of performances and control against which compliance, adequacy of the systems to support actual fire department operations, and effectiveness and efficiency of the fire department can be evaluated and assessed. Further, the actual fire and non-fire risks were examined and a determination of whether the current fire department capabilities are able to effectively and efficiently mitigate those risks was completed. The criterion is based on the following, and is further articulated in the section on Legislative Authority and Responsibility: Legislation and Regulation; By-laws of Council, signed agreements including the establishment of joint fire boards; Requirements as stipulated in any Agreement signed by the Municipality; Office of the Fire Marshal s Technical Guidelines; and Office of the Fire Marshal s Directives and Communiqués; Other recognized standards and best practices: o Occupational Health and Safety Section 21 o o o o o o o National Fire Protection Association (NFPA) Canadian Standards Association Canadian General Standards Board Underwriters Laboratories Canada Incident Management System Blue Card Command National Institute of Standards and Technology (NIST) U.S Department of Commerce.

11 Methodology The MFP utilized both qualitative and quantitative methodologies to develop a strong understanding of current and future circumstances. St. Catharines staff used the following research methodologies to develop recommendations and opportunities for improvement: Documentation and file reviews both internal and external; Literature review of all current and forecasted City of St. Catharines strategic planning, and other City of St. Catharines documents; Comparison with other similar municipalities. Recommendations To ensure the department remains sustainable into the future, recommendations were developed, based on risk, to address an item which: could be considered in the short or long term, may require a significant allocation of fiscal resources, or where an increase in the staffing complement is identified. FEMS MASTER FIRE PLAN

12 Ontario Fire Protection Model Three Lines of Defence In Ontario the provision of fire protection services is based on the three lines of defence. No one measure on its own provides the level of fire protection necessary to reduce the loss of life from fire. Traditionally, fire services concentrated its efforts on extinguishing fires. Today s fire service views public education and prevention, fire safety standards and code enforcement, and fire suppression as equally important. Fire prevention and public education use a proactive approach in reducing the probability of fires occurring and help to limit the loss of life and property. Fire suppression is the failsafe. 1. Public Education and Prevention: Education is the best way to reduce the incidence of fire. Residents must be educated to take responsibility for their own fire safety and to take the steps necessary to prevent fires. For example, individuals are responsible for the safe use of candles, heating devices, cooking materials and procedures, and smoking materials, among others. 2. Fire Safety Standards and Code Enforcement: By ensuring that buildings have the required fire protection systems, safety features, and systems in place, fire damage and casualties will be reduced. To ensure compliance with recognized best practices, legislation has been enacted (i.e. the installation of smoke alarms and the granted authority to penalize those who do not comply). 3. Emergency Response (Suppression): Emergency response is the failsafe aspect for those times when fire does occur. Destructive fire cannot be eliminated totally there will continue to be fires, whether the cause is accidental, deliberate or natural. In those cases, services must be available to respond and lessen the impact. Although there are similarities in fire protection delivery, each municipality has its own unique set of needs and circumstances which is reflected in the fire protection services and programs delivered. One model does not fit all municipalities; however there is a minimum acceptable standard. The completed risk assessment provides the basis for the development of programs that are comprised of the three lines of defence. This MFP has identified both the present and future fire risks to the community. Based on these risks, the present delivery system has been evaluated to determine the capability of the fire protection delivery system.

13 Risk Determination of Risk Risk can be defined as a measure of the probability and consequence of an adverse effect to health, property, organization, environment, or community as a result of an event, activity or operation. For the purposes of the Fire Risk Sub-Model, such an event refers to a fire incident along with the effects of heat, smoke and toxicity threats generated from the incident. The Office of the Fire Marshal and Emergency Management (OFMEM) Review of Fire Protection Services (Fire Prevention and Public Education) in the City of St. Catharines report, dated March 5, 2015 (Appendix B) stated: assessing fire risks within a community is the process of examining and analyzing the relevant factors that characterize the community, and applying this information to identify potential fire scenarios that may be encountered. A fire risk assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences. This information serves as the basis for formulating and prioritizing fire risk management decisions to reduce the likelihood of these events from occurring and to mitigate the impact of these events should they occur. Tools to identify Community Risk: Fire Risk Sub-Model The Fire Risk Sub-Model assesses fire risk using seven components fire risk, fire prevention program effectiveness, public attitude, detection capabilities, built in suppression capabilities, intervention time, and fire ground effectiveness to examine and analyze the relevant factors that characterize the community. The Sub-Model assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences. High and extreme risks (major and catastrophic in the sub-model) should be assessed by the fire department to determine best mitigation strategies when applying the Three Lines of Defence: public education, inspection and code enforcement, and emergency response. High risks may include situations such as a facility for the aged that doesn t have sprinklers. Extreme risks may include industrial facilities in communities that have experienced urban encroachment next to a fertilizer plant. Integrated Risk Management Web Tool The Integrated Risk Management Web Tool (IRM) is intended for municipal and fire service decision-makers. The tool assists municipalities in fulfilling the responsibilities prescribed in the Fire Protection and Prevention Act (FPPA). FEMS MASTER FIRE PLAN

14 Community Profile from a Risk Perspective St. Catharines Fire and Emergency Management Services is a professional and well-equipped fire department that provides residents and visitors in St. Catharines with a high level of fire protection services. FEMS is active within the community and is constantly interacting with the public it serves. The fire department is supporting the City s Strategic Plan by recognizing the need for longterm planning to ensure the department continues to provide essential community services, enhances services where gaps have been identified, educates the public to reduce loss of life and property, and is sustainable into the future. The MFP Committee s goal is to conduct a comprehensive examination, assessment and report on every aspect of Fire Services, to mandate and ensure it continues to deliver a broad range of services prescribed by Council and legislation; such as the Fire Protection and Prevention Act and the Occupational Health and Safety Act. Municipal Profile The City of St. Catharines has a population of 131,400 and covers an area of square kilometres. Table 1: Occupancy Classifications Occupancy Classification # of Occupancies Group A Assembly 447 Group B Institutional 72 Group C Dwellings 55, 420 Group D and E Commercial 877 Group F Industrial 536 Totals 57, 352

15 Community Risk Conclusion St. Catharines Fire and Emergency Management Services (FEMS) through its history has developed operational plans and implemented recommendations and initiatives that have established the fire department of today. This foundation has provided the basis for FEMS to address current and future risks. St. Catharines, based upon its population, building stock and proposed development, has significant present and future fire and emergency risks. As the City moves forward with its strategic plan and the MFP, St. Catharines Fire and Emergency Management Services must enhance its ability to continually analyze and report on its community risks in a consistent and timely manner. Organizational Risk and Capabilities Risk Management Planning and Due Diligence The identification of fire risks both present and future provides the basis from which an evaluation of the current services delivered can be measured. Risk management is an ongoing process as risks continue to change and be identified. By analyzing risk, fire protection services can be proactive and develop the most appropriate program(s). It s important to incorporate risk management into FEMS daily operations to ensure its public funding is used efficiently and effectively. Due diligence identifies potential liabilities or hazards and the steps taken to correct and/or prevent them from occurring. Due diligence is about protecting the community of St. Catharines. With a MFP, the City is demonstrating it has taken the necessary steps to ensure the required due diligence mechanisms are in place. Moving forward, allocation of resources should be considered in order to continually identify the risks to the community, as well as opportunities to enhance and coordinate a risk-based approach to the delivery of fire protection services. As the City continues to develop and implement its strategic plan, the fire department should have the capacity to fully support and provide the fire protection services required. FEMS MASTER FIRE PLAN

16 Fire Protection Services Authority and Responsibility The Fire Protection and Prevention Act, 1997 The Fire Protection and Prevention Act, 1997 (FPPA) is an Act to promote Fire Prevention and Public Education in Ontario and to amend and repeal certain other Acts relating to Fire Services. The following are extracts from the FPPA that are most relevant to this MFP. 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; In Ontario the Office of the Fire Marshal has determined that municipal compliance with Clause 2.(1)(a) of the Fire Protection and Prevention Act, 1997 requires a municipality to: Complete a Simplified Risk Assessment Provide a smoke alarm program with home escape planning Distribute fire safety education materials Conduct Fire Code inspections upon complaint and or request The municipality is at present compliant with Clause 2. (1)(a) of the Fire Protection Act as determined by the Office of the Fire Marshal. Clause 2.1(b) of the FPPA states that: Every municipality shall 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 has not prescribed, as it has for Clause 2. (1)(a), the exact requirements to meet the legislative requirements. This clause is only the minimum and is not the expectation for a larger municipality. Methods of Providing Services (2) In discharging its responsibilities under subsection (1), a municipality shall: (a) appoint a community fire safety officer or a community fire safety team; or (b) establish a fire department

17 Powers of Fire Chief (5) The Fire Chief may exercise all the powers assigned 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. 11.(1) The following persons are assistants to the Fire Marshal and shall follow the Fire Marshal s directives in carrying out this Act: (a) the Fire Chief of every fire department; (b) the Clerk of every municipality that does not have a fire department; (c) any member of a fire prevention bureau established by a municipality; and (d) every person designated by the Fire Marshal as an assistant to the Fire Marshal. 1997, c. 4, s. 11 (1); 2002, c. 18, Sched. N, s. 2 (1). Duty to report (2) The assistants to the Fire Marshal shall report to the Fire Marshal all fires and other matters related to fire protection services as may be specified by the Fire Marshal. 1997, c. 4, s. 11 (2). Municipalities provide fire protection services and fund through their own revenues the expenditures required. Also City Council, as the representative of the municipality, is responsible for the delivery of fire protection services as articulated by the FPPA, and to ensure compliance with all other Provincial and Federal statutes that affect the fire department by any other means. Therefore, while many of the recommendations contained in this MFP are not requirements of the FPPA, Council should strongly consider all other legislation that affects the delivery of fire protection services. Both Federal and Provincial government agencies can utilize their own legislative and enforcement powers to ensure that the City of St. Catharines, including the City s Fire and Emergency Management Services, comply. The following are only representative of the various acts and the associated regulations that apply and are not intended to be used as a definitive listing of all applicable acts: Occupational Health and Safety Act, R.S.O Coroners Act R.S.O Criminal Code (R.S., 1985, c. C-46); Municipal Act, 2001; Highway Traffic Act, 1990; Environmental Protection Act, R.S.O. 1990; Emergency Civil Protection Act, R.S.O. 1990; FEMS MASTER FIRE PLAN

18 Municipal Freedom of Information and Protection of Privacy Act, R.S.O. 1990; and Various Transport Canada Acts. Occupational Health and Safety Act (Administrated by the Ministry of Labour) From the perspective of managing fire department operations, applicable legislation that could be applied in the event of workplace death, injury or disease could be the Provincial Occupational Health and Safety Act, the Coroners Act, and potentially the Criminal Code of Canada. Under the Occupational Health and Safety Act, the Ministry of Labour may apply Section 21 to determine if employers have taken all reasonable precautions in the circumstances for the protection of the worker. In the event of a death, the Coroners Act R.S.O may apply and there is the potential for an Inquest. Under the Criminal Code of Canada, there is a duty to take reasonable steps to prevent workplace accidents, and this includes organizations. Thereby a responsibility is placed on corporate decision-makers and virtually all persons directing work in the workplace, to take all reasonable measures to protect the employee and public safety.

19 St. Catharines Fire and Emergency Services Organizational Structure St. Catharines has a total complement of 166 personnel as of March 31, The breakdown is below: Prevention, 8 Communications, 13 Management/Admin, 6 Training, 3 Suppression 136 FEMS MASTER FIRE PLAN

20 Analysis and Recommendations Establishing and Regulating By-Law 1. By-Law Recommendation The Establishing and Regulating By-law, #76-319, should be reviewed, updated and specify the services and level of services provided by the fire department. Further, the Establishing and Regulating By-law should be reviewed on an annual basis by the Master Fire Plan Advisory Committee, or more frequently if required, to ensure that the level of service as determined by Council is achieved. The results of this review should be submitted to Council for information and consideration. Priority Immediate Background The Establishing and Regulating By-law for the municipality is an expression of Council s direction regarding the provision of fire protection services. Fire protection services is a defined term under the Fire Protection and Prevention Act, and therefore has legislative meaning. The following are required in the current by-law: Type of service to be provided should be further defined; Level for each service to be provided should be defined; Expectations of Council should be stated; and The document should provide for a level of detail and direction to protect all interests of the municipality, Council, senior staff and fire department members. The existing By-law # is designed for the prevention of fires, spread of fires and preservation of life. However, this outdated by-law is not reflective of the requirements for an Establishing and Regulating By-law. It is a municipality s responsibility to determine the types and extent of fire protection services necessary to meet their specific needs and circumstances. An analysis was made of By-law #76-319, keeping in consideration that the Fire Protection and Prevention Act supersedes municipal by-laws.

21 The following are primary issues that need to be addressed in an Establishing and Regulating By-law for the City of St. Catharines: Reference to Ontario Codes and Standards; General functions and services to be provided; The goals and objectives of the department; General responsibilities of members; Method of appointment to the department; Method of regulating the conduct of members; Procedures for termination from the department; Authority to proceed beyond established response areas; Authority to effect necessary department operations. Findings/Analysis The Fire Protection and Prevention Act provides the legal authority and responsibility for establishing fire departments and sets out municipal responsibilities. The by-law is necessary as it prescribes the service levels of fire protection services for the municipality and should: Define the type of fire protection service to be provided; and Define the level that each fire protection service is provided. The by-law will serve to better protect the City and its staff from possible litigation in the future. Council is advised that in setting a level of fire protection service to be provided by the FEMS MASTER FIRE PLAN

22 fire department, the necessary resources to provide those services are required. This may include: Staff Fiscal resources Training Equipment and Development of required policies and guidelines Once a new by-law is passed, the City should take the necessary steps to inform the public of the service level that can be anticipated. Conclusion An Establishing and Regulating By-law is mandated by the Fire Protection and Prevention Act and required to meet the municipal recommendation for compliance with the Office of the Fire Marshal and Emergency Management (OFMEM) and is the only outstanding item from the OFMEM audit, Appendix B. A more defined by-law establishes the type of fire protection services provided, the level of each service, better protects the City from litigation and ultimately enhances the department s ability to protect the community.

23 2. Administrative Support Recommendation Administrative Services The current workload is approaching capacity of the existing administrative staff. Ongoing monitoring of all duties and responsibilities should be measured to ensure tasks, effort and workload match the staffing complement. Priority Ongoing monitoring and review required. Background Management Administration Division The Management Administration Division consists of the Director/Fire Chief, two Deputy Fire Chiefs and three administrative support personnel. The Management Team is housed at Headquarters Station 1 64 Geneva Street Master Fire Plan Recommendation In 2008, no recommendations were included in the MFP pertaining to the Department Management Administration Division. Fire Chief The current St. Catharines FEMS Director/Fire Chief was appointed to the position in October Under his leadership, the department s goal is to continue to be an innovative, progressive and professional fire service while ensuring a balanced approach to public fire safety. He is responsible for the overall operation and administration of FEMS. The Fire Chief reports to the City s Chief Administrative Officer. Duties of the Fire Chief include: Department budgeting; Emergency planning; FEMS MASTER FIRE PLAN

24 Labour relations; Supervision of personnel matters: recruitment, training schedules, personnel counselling and represents the Department in contract negotiations; Participation in the corporate management team; Prepares and provides reports to Council as required; Responsible for public and media relations relevant to fire and life safety issues; and Lead advisor to Mayor and Council on all fire protection services. Deputy Chief St. Catharines FEMS employs two Deputy Fire Chiefs who support the Fire Chief with the daily administration of the department. One of the Deputy Chiefs is responsible for the operations of the Training and Suppression Divisions, while the other Deputy Chief is responsible for the operations of Communications and Fire Prevention Divisions. Duties of a Deputy Fire Chief include: Plan and implement Corporate initiatives along with researching, developing and supporting department initiatives; Recruit, select and hire full-time staff; Assist Fire Chief in the preparation of and monitoring of annual operating and capital budgets, ensuring that targets are achieved and operating expenses are kept within budget; and In the absence of the Fire Chief, has all the power and authority to execute the duties of the Fire Chief; and Oversee the Operations of their designated Divisions. The Fire Chief and both Deputies in accordance with FEMS policy, perform the duties of on-call Senior Officer. The policy outlines specific criteria for notification and response of the Fire Chief or Deputy Chiefs. Communications is responsible for following protocol for notification and/or requesting the on-call Chief. Either the Fire Chief or one of the Deputy Fire Chiefs is required to be on-call at all times, 24 hours per day, seven days per week based on a rotating weekly schedule. Additionally, St. Catharines FEMS has one Office Manager, one Administrative Assistant and one Clerk Receptionist. Duties of Office Manager: To provide administrative support for the Fire Chief, Deputy Chiefs and all other members of the Fire Service; To oversee and maintain departmental records as they pertain to correspondence, fire reporting, personnel related matters, budget, purchasing, Freedom of Information, standard operating guidelines, and all other areas of the Fire Service Supervise Administrative Assistant and Clerk Receptionist

25 Duties of Administrative Assistant: To perform administrative duties for Fire Services as they relate to departmental records, minutes, correspondence, budget, Fire Service equipment, protective clothing, repairs to vehicles Provide support to the Officer Manager in maintaining departmental records Perform administrative support to the Emergency Management Co-ordinator and the Emergency Operations Centre Duties of Clerk Receptionist: To perform administrative support to the Fire Prevention Office, Administrative Assistant and Office Manager To perform a variety of secretarial, administrative and program related duties involving and including the operation and administrative procedures of Fire Services; Prepare reports and summaries for use of the Corporation and other agencies including the Office of the Fire Marshal, Ministry of Transportation, Niagara Regional Police Services, etc. Prepare from drafts correspondence, reports, letters, memoranda, minutes, statistical, forms and other related documents; Maintain divisional records for complaints, inspection reports, Investigation reports, fire safety plans and other related documents The current administrative team works as a cohesive unit. Administrative staff effectively supports and excels at ensuring the daily administrative operational requirements of the fire department are met in an expeditious and professional manner. Often, one of the administrative staff is the initial contact with the general public and they are required to have a functioning knowledge of all divisions in the department to ensure excellent customer service is provided. Findings/Analysis Current Budget and Labour In compliance with the City budget policy, the Fire Chief or his designate is responsible for developing and maintaining effective policies and procedures that govern planning, forecasting, budgeting and financial controls. The Fire Chief or designate prepares the annual operating and capital budgets, develops cost effective budget proposals, reviews budget submissions with City Council, and implements budget objectives. They are also accountable for any variances that may occur. FEMS MASTER FIRE PLAN

26 The FEMS annual operational budget includes: Personnel Services wages, salaries, benefits, over time, sick time and acting rank pay. Fixed Costs these items are not under FEMS control such as service contracts, testing and inspections, fuel, insurances, building and vehicle repairs, utilities and depreciation. Operational Costs Training, Fire Prevention and Communications budgets, supplies, clothing, memberships and conferences. Options No alternative options to be considered at this time. Conclusion The workload for the administrative staff is approaching capacity. However, with the implementation of the Records Management Firehouse Program (see Departmental Records on Page 28 for more information) in the third and fourth quarter of 2017, a reduction in the staffhours spent maintaining departmental records is anticipated, thereby increasing the efficiency and productivity of the Administrative Division. The ongoing monitoring process will ensure that FEMS provides a supportive and healthy work environment; that encourages all staff to feel safe, satisfied and stimulated in the performance of their duties and responsibilities. Reviewing the administrative services over the life of the plan, when necessary, will also ensure efficient and effective use of resources and identify gaps, if or when they arise which ensures the department continues to be sustainable into the future.

27 3. Fees for Service Recommendation Continue the current practice of reviewing, revising and implementing fees for service on an annual basis or as required by FEMS management team. Priority Ongoing monitoring and review required. Background The City of St. Catharines has an existing Rates and Fees By-law, # , in accordance with Section 391 (1) of the Municipal Act 2001, S.O. 2001, c. 25, as amended, which authorizes municipalities to pass by-laws imposing fees or charges on persons: a) for services or activities provided or done by or on behalf of it; b) for costs payable by it for services or activities provided or done by or on behalf of any other municipality or any local board; and c) for the use of its property including property under its control Master Fire Plan Recommendation In 2008, no recommendations were put forth in the MFP pertaining to the Rates and Fees By-law. Prior to the Fire Chief s final approval to any required changes to the Fee Schedule, the Deputy Fire Chiefs, on an annual basis, review their Divisions submittals for recommendations and/or revisions to new or existing fees as required. Annually, the City s Rates and Fees are approved by City Council before being implemented. Guidance on the Rates and Fees is provided by the City s Budget Standing Committee which, on September 19, 2016, approved a motion that staff at minimum increase all rates and fees using the current rate of inflation. The rate of inflation was last reported for July 2016 at 2.1% and was incorporated into the Rates and Fees for Findings/Analysis The rates and fees are reviewed and determined annually though consultation with the department, the City s finance department and senior management. FEMS MASTER FIRE PLAN

28 The rates and fees are further reviewed by the St. Catharines Budget Standing Committee which may recommend changes increases or decreases with final approval being the responsibility of Council as a whole. Options No alternatives are being suggested at this time. Conclusion As the Rates and Fees are reviewed on an annual basis, and changes are approved by Council, this process is efficient and effective in ensuring rates and fees are in line with comparable municipalities, meet legislative requirements, and assist with partial cost recovery, where applicable.

29 4. Departmental Records Management Recommendation Integrate, in collaboration with the City and FEMS, other Corporate software programs to ensure connectively and retention requirements are being met once the Firehouse software has been fully implemented and all users have been trained. Priority Ongoing monitoring and review required. Background In October 2016 the first phase of the development and implementation of Firehouse records management software was scheduled for Fire and Information Technology (IT) staff. Once the Firehouse program framework is complete, there are almost endless limits to the program s abilities. Corporately, the Amanda program used by Planning and Building Services and FEMS, can be integrated into Firehouse as well as payroll, attendance, vehicle maintenance, inventory and employee training. Fire department records are subject to the Municipal Act and the Municipal Freedom of Information and Protection of Privacy Act. Under the Municipal Act, municipalities have a legislated responsibility to have a records retention schedule which includes fire department records. These records should be located centrally within the fire department to control and prevent unauthorized access. St. Catharines municipal records retention by-law (By-law # ) includes records retention requirements for fire department files. It is the responsibility of the Office Manager to ensure the retention of all fire department records are in compliance with the by-law. Currently the department has a number of custom and commercial records management programs and procedures. There are numerous record management systems in place, which has resulted in a lack of consistency and inefficiencies between divisions. The following records management systems are currently being used: FEMS MASTER FIRE PLAN

30 Fire Prevention uses the Corporate software system, Amanda, and maintains paper records for daily activities and inspections. Training uses a software program developed in-house. Emergency responders has several different electronic and paper records. Communications uses the Computer Aided Dispatch (CAD) system. Administration uses the Corporate network G drive for electronic records. Findings/Analysis The FEMS Senior Management Team recognized the difficultly in maintaining numerous records management systems between divisions. The Division Chiefs were assigned to research and provide options for a unified records management software program that successfully encompasses all of the record keeping needs for the various divisions within a modern fire service, to ensure compliance with legislative requirements. The Senior Management Team reviewed recommendations from FEMS and IT for a unified records management system. Firehouse software was selected as it is the most widely used system and the industry s most comprehensive fire records management system. Firehouse continues to develop new products to increase accuracy, accountability, and safety, while making critical information management fast, simple and more cost effective. In consultation and with the assistance of Sudbury Fire Services, the implementation of the Firehouse software has been expedited. Staff from Sudbury have assisted with the development, installation and training of Division Officers for the immediate use of the software. This will have an immediate impact on efficiency, by eliminating duplication and reducing staff hours dedicated to record management in all Divisions. Options No other options are being considered at this time. Conclusion Efficient records management is vital to Fire Services, not only from a legislative requirement stand point, but also from an operations efficiency, services and program development and staff management perspective. Once Firehouse is fully implemented it will increase efficiencies in records management, thereby reducing staff hours related to this function. The ongoing integration of other Corporate software programs is required to ensure connectivity between divisions and retention requirements are being met.

31 5. Corporate Emergency Management Recommendation Hire one additional staff member to assume to position of Community Emergency Management Coordinator (CEMC) for the City of St. Catharines. Further, that this recommendation be referred to the City s budget process. Priority Immediate Background The Emergency Management and Civil Protection Act R.S.O.1990, establishes the province s legal basis and framework for managing emergencies. It does this by defining the authority, responsibilities and safeguards accorded to provincial ministries, municipalities and specific individual appointments, such as the Commissioner of Emergency Management. Ontario Regulation 380/04 establishes the minimum standards for emergency management programs required by municipalities and provincial ministries and it supports the requirement in the Act for mandatory emergency management programs. Emergency management consists of organized programs and activities to prepare and deal with actual or potential emergencies or disasters. It is based on a risk management approach and includes the following four components: Prevention Mitigation Preparedness Response In 2007, the City of St. Catharines hired a full-time CEMC under the umbrella of the CAO s portfolio. An organizational restructuring occurred in 2009, and FEMS eliminated a Deputy Chief position and the CEMC became part of the Fire Service reporting directly to the Fire Chief. FEMS MASTER FIRE PLAN

32 In 2011, the CEMC staff member resigned from the position and a report to Council was submitted and approved. The full-time CEMC position was eliminated and replaced with a Deputy Fire Chief. The CEMC duties were to be shared amongst the Fire Chief and the two Deputy Fire Chiefs Master Fire Plan Recommendation In 2008, no recommendations were included in the MFP pertaining to Corporate Emergency Management Planning. Findings/Analysis The City of St. Catharines is currently in the process of reviewing, revising and updating all of its documentation, training program and by-law regarding Corporate Emergency Management. The Emergency Response Plan will be reviewed bi-annually and, where necessary, revised by the Emergency Management Program Committee. The review and recommended revisions will be coordinated by the Community Emergency Management Coordinator (CEMC). The plan shall be revised only by by-law of Council; however, revisions to the appendices and minor administrative or housekeeping changes may be made by the CEMC. The Corporate Organizational Chart designates the FEMS Fire Chief in the role of CEMC and both Deputy Fire Chiefs designated as Alternate CEMCs which is further demonstrated in Table 2, seen on page 33, outlining municipal comparisons and the designation of the CEMC and the reporting structure. The CEMC is responsible for ensuring all 75 Emergency Operations Centre (EOC) staff are fully trained to the provincial IMS Certification and competent in their roles and responsibilities in the event of an emergency. If the CEMC position does not have a dedicated full-time staff member assigned to fulfilling the mandatory requirements in accordance with Provincial Codes and Standards, the City of St. Catharines could be at risk of failing to maintain legislated compliance. Failure to review and update the plan, policies, by-law, guideline, emergency contact lists, etc. for accuracy and relevancy could result in non-compliance or worse an unprepared response to a full scale emergency. Furthermore, without a dedicated CEMC position the risk increases that the City of St. Catharines will not have Hazardous Incident Risk Assessment or Critical Infrastructure requirements completed and submitted annually due to the extensive amount of time required to review and update these documents.

33 Table 2: CEMC Roles/Reporting Comparisons Municipal Fire Service CEMC Reporting Structure Barrie Deputy Fire Chief of Prevention/CEMC Fire Chief Brantford Full-Time CEMC Fire Chief London Full-Time CEMC CAO Thunder Bay Thunder Bay Fire Rescue Director of Administration Deputy Fire Chief Cambridge Full-Time CEMC CAO St. Catharines Fire Chief CAO Guelph Police CAO Kingston Kitchener Markham Full-Time CEMC - designated statutory official of the City through by-law Full-Time CEMC Full-Time CEMC Fire Chief Niagara Falls Fire Chief CAO Peterborough Full-Time CEMC CAO Greater Sudbury General manager of Community Safety / Chief of Fire and Paramedic services CAO Burlington Full-Time CEMC Fire Chief FEMS MASTER FIRE PLAN

34 Options 1. Hire one additional staff member to assume the position of Community Emergency Management Coordinator (CEMC) for the City of St. Catharines. 2. Designate an alternate member of the St. Catharines Senior Management Team, other than the Fire Chief (outside of Fire Services), as the CEMC for the City of St. Catharines. Conclusion The Fire Chief s and/or Deputies roles do not permit for the staff hours required to fulfill the obligations of the CEMC position as identified in the Findings/Analysis. It s important to note the Fire Chief/Deputy cannot perform multiple functions during an emergency situation in the Emergency Operations Centre (EOC). The Fire Chief and Deputies must be available to rotate as the Operations Section Chief in the event of an activation of the Emergency Operations Centre (EOC). If there were an activation of the EOC, the Chief and Deputies would not be available to perform the duties of the CEMC in addition to the duties of the Operations Section Chief. As such, it would not be an effective or sustainable model to have the Chief and/or Deputies fulfil the role of CEMC in addition to their regular duties moving forward.

35 Fire Prevention 6. Public Educator Recommendation Hire one full-time dedicated public educator to the Fire Prevention Division. Further, that this recommendation be referred to the City s 2018 budget process. Priority Immediate Background Public education is the first line of defence. Public education provides residents the knowledge they require to prevent fire and, in the event of a fire, take steps to preserve one s life or that of another. Public education is just as important as suppression. Public education is measurable both in terms of actual presentations and at the more analytical level in evaluating occupant behaviours (short/medium and longer term) leading up to an actual fire incident. The effectiveness of the public education program in a community is dependent upon implementing programs based on risk and delivering those programs in the most effective and efficient manner. Each audience based on age, interest, and specific circumstances requires that the delivery mechanism meet their learning style, and that ongoing evaluation be in place. In the event of a fire, evaluating whether or not public education had a positive and or negative impact on the outcome of a fire is imperative. Public education is a high priority in the fire protection delivery system, and enhancements to the system will provide greater protection to the City of St. Catharines Master Fire Plan Recommendation FEMS was to increase staff within the Fire Prevention Division to maintain its responsibilities under the Fire Protection and Prevention Act. Recommendation to hire one (1) Public Fire Safety Technician was not implemented. Public fire safety education is provincially mandated for all fire services. Currently, the role of public educator is not a position within the organizational structure within the Fire Prevention Division. FEMS MASTER FIRE PLAN

36 The role of public educator, presently, is a shared responsibility among all fire prevention staff. Fire Prevention personnel are responsible for the development and implementation of educational programs based on the identified risk and the need and circumstances within the community. These programs provide fire safety education to multiple age groups, special interest groups, and industry within the city, just to name a few. A full list of the initiatives developed by the Fire Prevention Division can be found in Appendix A. Findings/Analysis Public Education Programs and Activities Required Hours Each public education program and activity is broken down into six essential categories: 1. Resource Allocation and Implementation 2. Documentation 3. Delivery 4. Verification 5. Inspector Development 6. Standard Operating Guideline Development In our analysis, further detailed in Appendix A, the public education programs offered by FEMS requires up to 1,122 hours of staff time and the activities require an additional 380 hours. As such, a total of 1,500 staff hours are required to deliver educational programs and activities at the current level. FEMS public education programs and activities are varied and innovative and are supported by the Fire Prevention Division staff. However, over the past 23 years the ability of Fire Prevention to continue to meet the mandates of the Fire Protection and Prevention Act have been seriously affected by a number of external and internal factors. These factors include increases in provincially mandated requirements such as O.Reg.364/13 requiring annual fire inspections and observed fire drills for all care occupancies and retirement homes, as well as O.Reg.365/13 requiring the assessments of complaints and requests for inspection. The Office of the Fire Marshal s Review Report identified recommendations specific to the development, delivery and implementation of public education programs.

37 In , FEMS committed staff to allow for the concentration of resources towards public education, gaining Office of the Fire Marshal compliance. For continued compliance with legislative mandates, this model is not sustainable without significantly impacting other duties and responsibilities within the Fire Prevention Division, such as: plans review; Ontario Fire Code enforcement/prosecution; mandated complaint and request inspections; mandated vulnerable occupancy annual inspection and fire drill scenarios; conducting fire investigations; and other duties as assigned. To successfully continue to provide all public education programs within the City of St. Catharines, it is recommended that the Fire Prevention Division be increased by one person. The current staffing level in the Fire Prevention Division is unable to meet the mandated public education requirements in addition to legislated fire prevention requirements. Public education can be both proactive and reactive. It is proactive in terms of educating residents on how to prevent a fire and what to do in an event of a fire. Public education is also reactive. After a fire an evaluation is conducted to determine the effectiveness of the overall public education program and adjustments and enhancements are implemented as required. Based on the completed risk assessment and province of Ontario statistics, the highest risk persons in the community should be the focus of FEMS public education programs. Therefore, programs to address school aged children, older persons, other vulnerable persons and persons in higher risk residential buildings should be enhanced. FEMS MASTER FIRE PLAN

38 Table 3: Fire Prevention Staff Complement - Municipal Comparisons Municipal Fire Service 2011 Population Vulnerable Occupancies * Full-Time Fire Prevention Staff Plans Examiner (FT) Public Educator Conducts Fire Investigations Thunder Bay 108, Conducts plans review part of the Inspector Role 1 Suppression staff only Windsor 210, Conducts plans review - part of the Inspector Role 1 Fire Prevention conducts all Fire Investigations Greater Sudbury 160, Suppression conducts basic fire investigations All others by OFMEM Burlington 175, Site plan review only No permit inspections 1 Suppression staff only St. Catharines 131, Conducts plans review - part of the Inspector Role 0 Fire Prevention conducts all Fire Investigations Guelph 121, Does not do plans reviews 0 Fire Prevention conducts fire investigations Niagara Falls 82, Fire Prevention conducts fire investigations with a dollar loss of $20,000 or higher Suppression staff conducts fire investigation if the dollar loss is less than $20,000

39 Oshawa 149, Conducts plans review part of the Inspector Role 0 Suppression staff only London 366, (currently recruiting for an additional 4 Inspectors) 2 4 Fire Prevention conducts Fire Investigations with a dollar loss of $50,000 or higher Suppression staff conducts Fire Investigations if the dollar loss is less than $50,000 *Full-Time Prevention staff statistics exclude Public Educator and Plans Reviewer positions. The municipalities shown in Table 3 all provide public education to their residents; however, they are structured in different ways to exercise their authority. Many municipalities have a designated Public Educator to assist with the high demand for public education programs and activities. Options 1. Increase the Fire Prevention staff complement by one, to include a full-time dedicated Public Educator. 2. Enter a partnership with other municipalities within the Niagara Region to hire a shared Public Educator. Negotiations and discussion with other fire departments and unions would be required for approval of this shared position. This partnership does not currently exist. 3. Reduction in the level of service to just meet minimum requirements of the legislation. FEMS MASTER FIRE PLAN

40 Conclusion Public education is about reaching, influencing and helping the children, parents, families, and those who, because of a variety of circumstances, require additional services and assistance. Effective public education connects the fire department to the community it serves. A Public Educator would be dedicated to developing and implementing public education programs specific to St. Catharines based on the annual risk assessment, fire investigation data, and the needs and circumstances of the community. As previously noted, this recommendation was also included in the 2008 Master Fire Plan and has yet to be fulfilled. The decision was made to recommend Option 1, as Option 2 would require negotiations with Local 485 as the position would be outside of the contract. Further, it is unlikely that a regionally shared Public Educator would have time to develop programs and activities specific to the City of St. Catharines based on the simplified risk assessment that is unique to this community. Option 2 would require organizing and scheduling of FEMS public education events, programs and activities and requests from the community as well as those for all other fire departments in the Niagara region. With respect to Option 3, public education is mandated and is a proactive approach to reducing the level of risk and saving lives in our community. Decreasing the level of public education provided to our residents and businesses is not advisable moving forward.

41 7. Fire Prevention Effectiveness Recommendation Promote an existing staff person to enhance the current two platoon system with a Fire Prevention Officer (FPO) assigned to each platoon to ensure a consistent approach to training, investigations, inspection and public education on both platoons. This recommendation is not a request for an addition to the staff complement. Priority Ongoing monitoring and workload review. Background Fire Safety Standards and Code Enforcement is the second line of defence, in conjunction with the first line of defence (public fire safety education), which configures the Division commonly referred to in many fire services as Fire Prevention. The Fire Prevention Division of Fire and Emergency Management Services is responsible for enforcing the provisions of the Ontario Fire Code (OFC), a regulation under the Fire Protection and Prevention Act, which includes more than 100 Referenced Technical Standards. In addition to the enforcement of the Fire Code, Fire Prevention staff also ensures compliance with certain provisions of the Ontario Building Code (OBC). The codes are considered companion documents as the Building Code is used during the building phase and the Fire Code maintains the building throughout its life-span Master Fire Plan Recommendation In 2008, no recommendations were put forth in the MFP pertaining to Fire Safety Standards, Code Enforcement and Fire Investigation in the delivery of Fire Prevention Services. Fire Prevention Effectiveness Model This public safety model is a holistic approach that will identify all factors that influence fire safety. The result will be a tool that will better enable all types and sizes of municipalities to make informed decisions on the provision of adequate and cost effective fire protection services. FEMS MASTER FIRE PLAN

42 The Fire Prevention Effectiveness Model identifies the issues that need to be considered when selecting the most effective program (public education and/or inspection) to address the targeted risk. The selection process will depend on the nature of the risk and the resources available to the community. The Fire Prevention Effectiveness Model was utilized by FEMS during the MFP process in reviewing fire prevention programs to ensure the needs of the community are being met. The model assisted with selecting the best available solutions to manage fire risks through the most effective and efficient use of resources for FEMS. A comprehensive, objective and defensible fire prevention plan will enable FEMS to address risk management, budget and accountability issues. Identifying the fire risks, planning appropriate solutions and implementation reduces the possibility of the City of St. Catharines being found liable for damages resulting from losses. Fire Prevention Effectiveness Model Needs Analysis Program Selection, Development and Implementation Program Evaluation Inspections Public Fire Safety Education Fire Incident Evaluation

43 Professional Commitment and Responsibility In the last quarter of 2015 and the first quarter of 2016, Fire Prevention person completed a basic Full-Time Equivalency (FTE) analysis which included all aspects of the Division s obligation to support the level of service currently provided by FEMS. Commitment versus Responsibility The Fire Prevention Division is tasked with code enforcement and public education in order to meet the legislative requirements of the Fire Protection and Prevention Act (FPPA) and the Ontario Fire Code. The Chief Fire Prevention Officer (CFPO) and seven Inspectors are scheduled to work 17,360 hours or 434 weeks per year. The current structure of the Fire Prevention Division is a two platoon system working four, 10 hour days, rotating day bi-weekly. The complement has only one Fire Prevention Officer assigned to platoon one. In the event of the Fire Prevention Officer s absence due to vacation, illness or it being their regularly scheduled day off, a qualified Senior Inspector will act in the position, in accordance with FEMS promotional policy. Roles and Responsibilities The roles and responsibilities of a Fire Prevention Officer includes providing supervision to Fire Inspectors, however, with the current workload related to plans review, site review and building permits, the FPO has only 10 minutes per week to commit to their supervisory duties. Currently, training is conducted on an ad hoc basis, due to the availability of the FPO, and therefore the acting FPO is largely responsible for the development, implementation and ongoing training within the Fire Prevention Division, along with their other assigned duties as a Senior Inspector. Findings/Analysis If FEMS enhances the current two platoon system by assigning a FPO to each platoon, it will make the structure of the Fire Prevention Division consistent with the current organizational rank structure within the other divisions. Further, this recommendation will enhance the productivity and quality of work within the Fire Prevention Division, for the FPO, by ensuring consistent supervision and training on both platoons. FEMS MASTER FIRE PLAN

44 Assigning a FPO to each platoon will ensure constant supervision and direction to staff five days a week. This would allow for a consistent approach and enhancement of customer service in a timely and efficient manner. In the absence of the Chief Fire Prevention Officer (CFPO) it will ensure that we have supervision in the division at all times. Furthermore, it will allow the workload of the FPO to be equally distributed among two persons, and significantly reduce the hours committed by one FPO to building processes. The additional FPO will also allow more time for the development and implementation of training, inspections, investigations, public education initiatives, and other duties assigned. Options No other options are being recommended at this time. Conclusion As stated above, the additional Fire Prevention Officer would improve the efficiency of the division, improve the use of resources, and allow for the constant supervision and direction of staff.

45 8. Fire Prevention Duties Recommendation Hire one full-time dedicated person dedicated to plans and site review to enhance the Fire Prevention staffing complement and support the City s Planning and Building Services. Opportunities to fund the position from the building plans review and licencing process should be considered. Priority Ongoing monitoring and workload review. Background Fire Prevention Duties All members of Fire Prevention are designated as assistants to the Fire Marshal under Subsection 11. (1) of the Fire Protection and Prevention Act. Assistants to the Fire Marshal shall follow the Fire Marshal s directives in carrying out their duties and responsibilities under the Ontario Fire Code. Time Dedicated The critical functions are: Simplified Risk Assessment (SRA); Inspections (INS); Planning and Building Services support (PBS); Investigations (INV); Public Education (PED); Enforcement (ENF); and Training (TRG). ENF 4% PED 20% TRG 8% PBS 9% SRA 1% INS 56% INV 2% FEMS MASTER FIRE PLAN

46 These functions can be further categorized into the following 11 duties and responsibilities: 1. Simplified Risk Assessment (Provincial mandate annually) The Fire Protection and Prevention Act (FPPA) mandates the requirements for every fire service to carry out a simplified risk assessment (SRA) to determine the needs and circumstances of the municipality. It is estimated to require 176 hours per year. 2. Inspections (Provincial mandate for all complaint, request and annual inspection of vulnerable occupancies) Public Fire Safety Guidelines and Directives are issued under authority of the Fire Marshal. These guidelines establish compliance requirements with Clause 2. (1)(a) of the FPPA. The Office of the Fire Marshal s minimum acceptable model for public fire safety education and fire safety inspections states that a municipality should, as a minimum standard, provide and maintain the following programs and activities for annual compliance: a risk assessment; a smoke alarm program, including home fire escape planning; and the distribution of public fire safety education materials. 3. Evacuation Drills (mandated annually for all vulnerable occupancies) Annual vulnerable occupancy fire drills as a requirement for O.Reg 364/13 every care and treatment occupancy (including retirement homes) is required to submit and undertake an annual fire drill for compliance with the regulation. 4. Fire Safety Plan Program (Provincial requirement to be submitted, reviewed and approved by Chief Fire Official, Section 2.8 of the Ontario Fire Code) Buildings and occupancies mandated to have a fire safety plan are identified and prior to occupancy shall submit their fire safety plan for review. Any changes to approved fire safety plans are also submitted to Fire Prevention for review.

47 5. Fire Extinguisher Training FEMS provides fire extinguisher training to both internal and external stakeholders. 6. Fire Code Enforcement (Provincial mandate) In accordance with legislative requirements, municipalities are now compelled to ensure all complaint and requests for inspections are assessed and conducted, if required. 7. Fire Investigation (Provincial mandate) Under Clause 9.(2)(a) of the FPPA, it is a duty of the Fire Marshal to investigate the cause, origin and circumstances of any fire or of any explosion or condition that, in the opinion of the Fire Marshal, might have caused a fire, explosion, loss of life or damage to property. As assistants to the Fire Marshal, Fire Prevention staff are required to attend all fire incidents to investigate every fire, to determine the cause, regardless of dollar loss. 8. Fire Plans Examination A critical role in the building permit review process, the Fire Plans Examination Section ensures that all fire and life safety requirements of the Ontario Building Code and potential Ontario Fire Code matters are addressed prior to the issuance of a building permit. Fire Inspectors are designated as Building Inspectors for fire protection systems. 9. Media Development and updating of internal and external fire safety public messaging. Includes social media, a new expansion to the public outreach and media communications responsibilities for FEMS. 10. By-law Development Municipal Under the FPPA, the Council of a municipality may pass by-laws regulating fire prevention activities and responsibilities. 11. Enforcement of Fire Related By-laws Provincial Fire Prevention staff have all been designated as Provincial Offences Officers for the enforcement of all municipal fire related by-laws. FEMS MASTER FIRE PLAN

48 Findings/Analysis Municipal Comparisons The total estimated staffing hours for site plan review, plans review, fire routes, and permit inspections is approximately 2,079.5 hours per year divided by 52 weeks, that totals 39.9 hours per week. A Fire Inspector has a 40 hour work week under the collective agreement; therefore, by performing the aforementioned duties it leaves a remaining 10 minutes to dedicate to fire prevention activities. St. Catharines has compared itself with other municipalities in Ontario to determine the roles and responsibilities of Fire Prevention. These municipal fire prevention duties and staffing levels are reflected in the Table 3: Staff Complement - Municipal Comparisons on Page 38 within the Public Education section. In this comparison it was noted that the trend is for Fire Prevention staff to share the plans examination role. As the focus for many municipalities in Ontario shifts towards the mitigation of risk and property loss, the optimization of the first two lines of defence has shown opportunities to: reduce 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 change in focus supports improvements targeted towards the Fire Prevention Division. Options 1. Increase the Fire Prevention staffing complement by one to include a full- time dedicated Plans and Site Review Inspector to support the building department. 2. Remove the building plans review and licencing process duties and responsibilities from the Fire Prevention Division. Conclusion The objective of a plans review is the following: o to make certain that buildings are safe for the public to occupy and firefighters to operate in o ensure functionality of fire protection systems and life safety of the occupants o identification of issues prior to occupancy during the plan review process which can result in cost savings for building owners as changes made during construction are often less expensive than renovations

49 A Fire Inspector s input is invaluable during the plans review process based on their expertise and knowledge of fire protection and life safety requirements. In addition, the inspector may locate any specific hazards located in the building during the process: o o o Hydrant location Fire Alarm Panel/Annunciator Panel Fire Routes Fire Services does not receive any remuneration for building and site plan review despite the amount of staff hours dedicated to this task. It is recommended that FEMS increases the Fire Prevention staff by one to allow for a dedicated Building and Site Review Inspector. FEMS Senior Management will continue to monitor the workload of the Fire Prevention Division, including the hours spent on Building and Site Plan Review to determine if funds should be transferred from the Building Department to the Fire Prevention Division to offset the cost of this position. FEMS MASTER FIRE PLAN

50 9. Training Personnel Priority Training and Development Division Recommendations Hire one additional Training Officer to the Training Division to meet the needs identified through the full-time equivalent analysis. Ongoing monitoring and review of workload. Background The St. Catharines Fire and Emergency Management Services Training Division resides and operates out of Station 4 located at 427 Merritt Street. The Training Division conducts various activities to ensure FEMS personnel are qualified and prepared to perform their duties. The Training Division consists of the Chief Training Officer and two Training Officers Master Fire Plan Recommendation In 2009, FEMS to supplement our staff complement within the Training Division add four new firefighter shift instructors to ensure that our firefighters receive ongoing training as required by the Office of the Fire Marshal and the Ministry of Labour. These additional Instructors will assist in ensuring a sustainable training program for all staff. Rationale for Recommendation: Our ability to ensure that our firefighters and officers receive the most adequate training is hampered by the simple fact we do not have an adequate number of people qualified and trained to deliver the necessary specialized training to our staff. Officer training, high angle rescue, confined space and hazmat are just a few samples of areas that we need to train our staff but is next to impossible due to our existing staffing situation. In order to ensure that our firefighters remain proficient and qualified as required by the Ministry of Labour, shift instructors are required. The firefighters/shift instructors will ensure that our firefighters are able to maintain a high level of skill proficiency in all the required areas.

51 Although this recommendation was not implemented, one additional Training Officer was added to the Training Division to assist in the implementation and delivery of programs and training as required to meet provincial and legislated standards. With the addition of a second Training Officer, targeted areas such as Technical Rope Rescue, Water Rescue, Auto Extrication, among others, have dramatically improved. The new officer also assists with Reclassification, Recruit Training and limited Officer Development. Although the abilities of the Training Division has been enhanced with one additional staff member, it still falls short of the 2008 Recommendation of four new Shift Training Instructors in lessening the workload and requirements in the day-to-day operations within the division. Numerous programs have been revised since 2008 and with the move to NFPA Standards for Suppression personnel, the requirements for the Training Division are vast. Training Program Framework The following activities are necessary to meet the current and ongoing demands of all training programs as they relate to maintaining the minimum professional and operational competencies within each of the eight major categories: EPC: Emergency Patient Care EVO: Emergency Vehicle Operations EOS: Essentials of Suppression FSC: Fire Science FSO: Fire Service Orientation and Safety PRD: Professional Development RSM: Risk Management TSR: Technical and Specialty Rescue Duties and Responsibilities Currently, the Training Division is staffed with one Chief Training Officer and two Training Officers who are responsible for planning, organizing, directing and/or supervising the professional development and training for approximately 136 Suppression personnel, as well as segments of training for eight Fire Prevention and 13 Communications personnel. RSM 8% PRD 42% Time Dedicated TSR 12% EPC 7% EVO 7% ESO 9% FSC 3% FSO 12% FEMS MASTER FIRE PLAN

52 There are numerous duties and responsibilities that are the sole responsibility of Training Division, such as: 1. Evaluation of, the following: newly hired personnel reclassification promotions for the rank of Acting Captain, and Acting Assistant Platoon Chief shift training instructors; 2. Act as Incident Safety Officer and operate within the strategic level of the Incident Management System; 3. Discuss, coordinate, and provide direction for Captains, assistant Platoon Chiefs and Platoon Chiefs with respect to training (specialized programs, maintenance training, equipment, etc.); 4. Replace defective, missing, and or expired equipment as required; 5. Develop, implement, deliver, evaluate, and administer, the following: All aspects of suppression training for all ranks including recruitment program, technical rescue, pump operations, emergency patient care, extrication, hazardous materials, fire ground survival, water/ice rescue reclassification program promotional program leadership program for officers specialty certifications provincially legislated records specialty training programs standard operating procedures and guidelines 6. Evaluate, research, and recommend procurement (i.e. equipment and technology); 7. Liaise with Senior Management, Administration, Communications, Prevention and other corporate departments with regard to training requirements, and other outside agencies (i.e. Niagara Emergency Medical Services, Niagara Regional Police, Ontario Power Generation, neighbouring Fire Departments, Enbridge, etc.);

53 8. Prepare budget recommendations for all aspects of training (courses, certification, equipment, etc.). Standards Based Development In December 2013, the Ontario Association of Fire Chiefs announced that they were no longer going to develop or maintain the Ontario Fire Service Standards, which were the standards that all fire service members in Ontario were trained to and certified against, including FEMS. In March 2014, the Office of the Fire Marshal announced that Ontario was adopting the National Fire Protection Association (NFPA) Professional Qualification Standards. The NFPA Professional Qualification Standards are accepted worldwide and identify the minimum job performance requirements for all levels of fire service members to train and certify against. Both, the International Fire Service Accreditation Congress (Accreditation Congress) and the Pro Board Fire Service Professional Qualifications System (ProBoard) use the NFPA Standards to endorse jurisdictions like Ontario to train, test and certify fire service members against. There are a number of NFPA Professional Qualification Standards that fire service members can train to achieve and then receive certification. At the time of the adoption of the NFPA Professional Qualification Standards, California was the only jurisdiction to have their own fire service standards. Since then California has also adopted the NFPA Professional Qualification Standards. The benefits of adopting, using and training to NFPA standards are many. NFPA standards are observed internationally to ensure that professional qualifications and the requisite knowledge, skills and abilities of firefighters of all types are met. NFPA standards are also important in the provincial building and fire codes; in fact NFPA standards are referenced in 90 places in the National Model Building and Fire Codes. FEMS Training Division s programs and initiatives are developed from the National Fire Protection Association (NFPA) professional qualifications standards produced for all fire services functions. Further, FEMS ensures continued compliance with respect to records, response capacity, and training programs based on NFPA standards. Also, FEMS utilizes the National Occupational Competency Profile for Paramedics (NOCP) to support all emergency patient care response capabilities. FEMS has invested an incredible amount of time to develop and maintain training programs that comply with NFPA standards and as a result, FEMS training programs meet and in most FEMS MASTER FIRE PLAN

54 cases exceed the identified levels of competence endorsed by the Office of the Fire Marshal s educational Accreditation Congress and ProBoard endorsed programs. Currently there are more than 350 individual job performance requirements used as a basis for professional development and maintenance to support the level of service that FEMS provides. Using job performance requirements as a basis for professional development allow for dynamic yet focused creation and application of knowledge and skills based training centred on professional development as well as maintenance. Although job performance requirements are specific in terms of their objectives, they encompass the general and fundamental understanding of multiple topics. This ensures that multiple skill and knowledge components are repetitively delivered across many different job performance requirements. As the Office of the Fire Marshal has formally adopted the exclusive use of NFPA standards for professional qualifications in the Province of Ontario, FEMS must continue to appropriate the resources required to develop, correlate, and maintain NFPA standards-based programs. These standards are what FEMS is ultimately measured against. Findings/Analysis Professional Commitment and Responsibility In the last quarter of 2015 and the first quarter of 2016, Training Division personnel completed a basic Full-Time Equivalency (FTE) analysis which included all aspects of the Division s obligation to support the current level of service FEMS provides. Commitment versus Responsibility Training personnel provide a wide and dynamic variety of services to ensure that the minimum required legislative and operational competence of the fire department s membership and level of service is adequately met. The CTO and 2 TOs are scheduled to work 5,360 hours or 134 weeks per year. There is also a verifiable professional responsibility of 8,040 hours or 201 weeks per year required to complete all minimum work responsibilities.

55 Training Program Framework The following activities are necessary to meet the current and ongoing demands of all training programs as they relate to maintaining the minimum professional and operational competencies within each of the eight major categories: Emergency Patient Care, Emergency Vehicle Operations, Essentials of Suppression, Fire Science, Fire Service Orientation and Safety, Professional Development, Risk Management, Technical and Specialty Rescue. Table 4: Training Staff Complement - Municipal Comparisons Municipal Fire Service 2011 Population Firefighters Shift Instructors (specialized) Shift Training Instructors Training Officers Thunder Bay 108, Barrie 136, Cambridge 123, St. Catharines 131, Kingston 123, (FT) 160 (V) 3 Note: The municipal fire services above all provide training to various divisions within their departments; however, they are structured in different ways to exercise their authority. In recent years, the workload, responsibilities, and diversity of the skills and knowledge required by firefighters has greatly expanded and evolved. As a result, so have the associated workload and responsibilities of the Training Division. Additional staff resources are required to successfully provide the appropriate training for all divisions, and to ensure fire service standards, regulations and guidelines are being met. FEMS MASTER FIRE PLAN

56 As the City of St. Catharines continues to grow, the Training Division must continue to meet the legislative requirements to train firefighters to NFPA standard with their delivery of core service to the community. Ongoing requirements under the Occupational Health and Safety Act, increase in the number of recruitment classes, and ongoing curriculum requirements has challenged the training division resulting in the division reaching its limit of being able to provide effective and efficient programs. Therefore, it s recommended the Training Division should be provided with the necessary resources. The additional Training Officer position would coordinate the Emergency Patient Care category Programs, along with coordinating segments of other category Programs to meet our identified levels of service as a department. Options 1. Add one additional Training Officer position to the Training Division. 2. Create four Shift Training Instructors (STI) positions (one on each Suppression platoon) to benefit on-shift training schedule and training coordination, organization, records management, liaise with Training Division regarding equipment and training resources. 3. Maintain the current level of staffing within the Training Division allowing existing personnel to incur overtime to meet minimum work requirements. 4. Add one additional permanent position to the Training Division, fulfilled through permanent rotating secondment of Suppression personnel into the Training Division for a specified period of time (i.e. six months). Conclusion The addition of one training officer within the training division would: Maintain required certification for all personnel; Maintain required certification for all current specialized programs; Assist in professional development of a comprehensive apparatus program (auto extrication, pump operations, defensive driving); Assist in professional development of Incident Management System and Company officer development program; Assist in professional development of information technology program (Firehouse, Mobile Data Terminals, Quick Action Plans, etc.).

57 It is vital that personnel continue to maintain certification required to provide the current, and any expected enhanced level of service and programs to the community. The addition of one Training Officer will allow for the development of a number of programs that, once developed and implemented, are intended to continue to ensure FEMS is prepared for to address the needs of the community. It also ensures the department continues to be sustainable through long-term strategic planning. FEMS MASTER FIRE PLAN

58 10. Suppression Personnel Emergency Response and Operations Recommendation Increase our staffing complement in the Suppression Division by 16 personnel with a staged implementation plan over four years. Further, that this recommendation be referred to the City s 2021 budget process. Priority High Background The overall public safety objective of a municipality is to provide the community with an optimal level of emergency response for the delivery of the approved core services. Emergency Response is one aspect of the three lines of defence. A municipality needs to continually evaluate its core services to ensure existing capabilities provide and manage all emergency risk levels within the community. Effective and efficient fire suppression capability is a critical component in ultimately protecting lives and reducing property loss as a result of fire within a community. Historically, the fire service has been measured on its ability to respond with sufficient resources to effectively perform a rescue and conduct effective suppression activities. However, it must also be recognized that effective fire ground operations provide a wide range of benefits to the community. Effective fire ground performance affects the degree of damage to the environment and property. Fire ground operations will also influence the extent of personal injury and impact on the local economy. The City of St. Catharines and FEMS have established an effective and efficient Emergency Response (Suppression) Division. The Suppression force is made up of four platoons with a Platoon Chief assigned to each of the four shifts (i.e. platoon) in the 42-hour average work week cycle. Off-shift firefighters are engaged to cover shift deficiencies due to sickness, vacations, recall and training when on-duty platoon staffing levels fall below 27. The average platoon strength is 34 personnel. A minimum staffing requirement of 27 has been established.

59 In January 2016, FEMS emergency responders transitioned from the 10/14 (10 hour day shifts and 14 hour night shifts) schedule to the 24 hour rotation schedule. Current Platoon Structure Each of the four platoons is comprised of: One Platoon Chief One Assistant Platoon Chief One acting Assistant Platoon Chief Six Captains Two acting Captains 23 firefighters Total: 34 personnel per platoon 2008 Master Fire Plan Recommendations Hire four firefighters in year one and then four firefighters for the next four years in order to bring all pumps to four (4) person pump crews. The 2008 Master Fire Plan recommendation was not implemented and no additional Suppression personnel were hired. Instead, FEMS ensures four firefighters are deployed at each fire hall to meet the NFPA 1710 standard. However, Stations 4 and 5 have both pumps and aerials, requiring personnel to switch between apparatus depending on the incident type and response criteria. In 2004, a new 95 Aerial Ladder truck was purchased to replace the existing aerial FEMS had in service. Due to the size and length of the new aerial, it was determined that it would be placed at Station. Upon completion and opening of the new Station 4 in 2013, the aerial from Station 6 was relocated to Station 4 to provide better coverage for the city. If the additional 16 firefighters are hired to staff an aerial full-time at Station 1, this would increase the apparatus depth of response by 25% (IAFF G.I.S. mapping Appendix D) within the city limits. Findings/Analysis With the additional 16 firefighters being hired, there would also be a significant reduction in the overtime budget. Currently, there is an average 34 firefighters designated to each platoon, however during peak vacation times (May to September) each platoon could have as many as six personnel off - reducing the platoon strength to the minimum staffing level of 27 personnel. If additional personnel call in sick, this would reduce the platoon strength to 26, requiring a firefighter to be brought in on overtime to meet the minimum staffing level of 27. FEMS MASTER FIRE PLAN

60 In addition to addressing the current needs of the community, additional firefighters will be required as the intensification and vertical growth of buildings (higher buildings) in the city increases due to limited availability of land for development in St. Catharines. Ontario Building Code requirements for fire alarm and protection systems is increased for higher buildings. Thereby, building intensification will result in an increased possibility of fire alarm and protection activations resulting in a higher frequency for aerial responses. The Niagara Region, as indicated within the City of St. Catharines Older Adult Plan, anticipates based on the current population and demographics that in five years time seniors aged 65+ will account for an estimated 60% of the population. Therefore, if the building is classified as a Care Facility or Licensed Retirement Home based on response protocol for fire response there will be an increase in responses requiring an aerial device. With current staffing levels, in the event of a structure fire 19 personnel (full response) are required to be on scene to perform firefighting tactics in accordance with the FEMS Incident Management System. In the event of an additional call requiring a full response there are only two remaining fire apparatus (eight personnel) available to respond to the second incident. Recall is automatically required. With the addition of 16 personnel (four personnel per platoon) FEMS would be able to fully staff an additional vehicle which enables firefighters to perform limited rescue and suppression activities simultaneously but is not in accordance with NFPA On a related note, a recommendation further detailed in Section 14 suggests Station 1 be renovated or replaced and an aerial be relocated to this station. If implemented, there will be a cost saving measure by reducing the requirement for three aerials down to two and reducing our response time to incidents. Conclusion The additional 16 Suppression personnel will ensure FEMS: Meets the requirements of NFPA 1710 for staffing of fire apparatus (aerial) with four personnel Reduces response time of the aerial by eliminating the requirement to switching trucks by station crews thus improving life safety and fire loss Additional personnel available to respond to two fire incidents Reduces requirements to hire back personnel in the event of illness, injury, vacation and bereavement to maintain designated staffing level of 27, thereby reducing overtime costs Reduces the need for recall which is a costs savings to the overtime budget Enhances the fire protection services to the community

61 11. Initial Response Performance Measure Recommendation Change the current response time criteria, as set by Council from 5 minutes anywhere within the City of St Catharines 90% of the time, to that of NFPA 1710 standard which recommends response time to 6 minutes 20 seconds (6:20) 90% of the time. This places the measurement of response time in accordance with the industry standard. Priority High As this recommendation does not require funding, it is recommended that it is implemented following the plan s approval. Background The City of St. Catharines currently uses its own Council-approved Response Performance Measure. The current measure requires an initial response (first arriving front-line staffed apparatus) within five minutes for 90% of emergency incidents. Total response time includes the entire duration beginning after the communicator s 911 call handling until the responding apparatus arrives on-scene. This includes the three main elements of response: Initial response: Dispatch time plus the turnout time plus the travel time provides the calculation for the initial response time. Dispatch time: Time to receive and dispatch the call (NFPA 1710 target is 60 seconds); Turnout time: Time required for firefighters to react and prepare to respond. Crews dressed and in the response vehicle, signed on the air and responding to the incident.(nfpa 1710 target is 80 seconds for fire and rescue incidents and 60 seconds for medical incidents); and Travel time: Actual travel time from the fire station to the incident (NFPA 1710 target is 240 seconds or four minutes for initial response). NFPA 1710 also measures initial response performance, however their recommended time is set at six minutes and 20 seconds of total response time (sum of dispatch, turnout, and travel time) which also targets 90% of incidents. FEMS MASTER FIRE PLAN

62 Mutual Aid Mutual aid plans allow a participating fire department to request assistance from a neighbouring fire department authorized to participate in a plan approved by the Fire Marshal. Mutual aid is not immediately available for areas that receive fire protection under an agreement. The municipality responsible for fire protection is responsible for arranging an acceptable response for back-up fire protection services. A fire department may ask for mutual aid assistance when it is at the scene or has information that immediate assistance is required. Fire departments may immediately request a simultaneous response from a participating fire department where distance and/or conditions dictate. The mutual aid plan may stipulate that the departments provide or receive assistance through additional or specialized vehicles and/or equipment, additional or specialized personnel, specialized advice and/or command assistance. Fire departments must adhere to the accepted response, reporting and other provisions of the mutual aid plan. Assistance is reciprocal with no fees involved for mutual aid. FEMS is an active partner in the Niagara Region Mutual Aid system. There is a written agreement and a rotating system for the position of Regional Fire Coordinator shared among the Fire Chiefs. Findings/Analysis The Dillon modelling assessment of Historic Call Data, Appendix C, indicates that the initial arriving vehicle, staffed with four firefighters as per minimum staffing requirements, St. Catharines Performance Response Measure arrived on-scene within five minutes or less to only 11% of the area in the stations district and 23% of the total calls within the district in that time. In comparison, the International Association of Fire Fighters (IAFF) modelling assessment, Appendix D, indicated that: NFPA 1710 requires a minimum of four firefighters on all pumper vehicles and aerials. Also, it requires the first vehicle has to be on scene within four minutes of travel to 90% of incidents. Currently, this requirement can only be met on 46.6% of City roads. The current lack of resources in the City significantly contributes to FEMS inability to meet the NFPA 1710 standards and any reduction in resources would further limit the department s response capabilities.

63 Staffing Ladder 4 with four firefighters and positioning it at Fire Station 1, Appendix D - Scenario 1, would result in a 24.6% increase in the amount of roads where a minimum of 15 firefighters could assemble on scene within eight minutes of travel to meet the requirements for response to a fire occurring in a low-hazard structure, as outlined in NFPA If Council were to increase the Performance Response Measure from five minutes to six minutes and 20 seconds, the average initial response time would improve to arriving on scene to over 81% of the area in the district and 94% of the calls within the district in that time. The recommendation from both the IAFF and Dillon Report, Appendix D and E, respectively, was that FEMS should adjust its response time measurement criteria to match the NFPA standard. The reports also concluded that the current station locations allow FEMS to meet the NFPA Standard of six minutes and 20 seconds for initial response within each district. Any further reduction in FEMS resources (apparatus, halls, personnel) would further limit the department s response capabilities. Conclusion It is recommended by both the IAFF and Dillon reports that FEMS should adopt the NFPA 1710 standard of six minutes and 20 seconds for 90% of total incidents for initial response which would allow FEMS to measure its response time against the industry standard as defined by the NFPA and endorsed by the OFMEM. Suppression personnel will continue to respond to emergency calls as quickly possible. As previously stated, this recommendation is only to change the response time measurement to that of NFPA FEMS MASTER FIRE PLAN

64 Communications 12. Computer Aided Dispatch Software (CAD) Recommendation: Hire one Communicator with GIS/CAD capabilities to bring the staffing complement to six persons per platoon. Further, that this recommendation be referred to the City s 2019 budget process. Priority Immediate Background The Communications Division meets the day-to-day challenges of providing frontline support and response to both the public and emergency responders. The Communications Division is responsible for call response (answering) and/or dispatching for 13 fire departments in southern Ontario. Fire communications involves answering 911 calls for fire service units including response personnel, fire investigators, hazardous materials units and specialized rescue units. Communicators handling these requests require specialized training in fire alarm dispatching, incident command systems, hazardous materials, and specialized technical rescue operations. FEMS Communicators are defined as a secondary Public Safety Answering Point (PSAP) for Niagara Region, Haldimand County and Norfolk County. This means that FEMS communicators are not the primary 911 answering agency for these departments. When a 911 call is placed in these areas, either the Niagara Regional Police (NRP) or Ontario Provincial Police (OPP) receive the initial call and transfer any fire or rescue emergencies to the Communications Division in St. Catharines for processing. Additional background information on the types of calls for services received by the Communications Division can be found in the Appendix A.

65 2008 Master Fire Plan Recommendation The 2008 Master Fire Plan recommended that in 2009 Communication staff should increase by two Communicators (one for each Platoon) in order to maintain a minimum staffing of three on duty during 06:30 to 18:30 working hours when telephone call volume is at peak levels. Again, the cost would be shared between the 13 municipalities. The reason for this increase in staffing is the number of calls that has increased over the years and the requirement to meet provincial NFPA training standards for Communicators. This recommendation was not implemented. Communications Division The Communications Division is directed by the Deputy Chief of Communications and Fire Prevention. The Communications Division is comprised of 13 personnel, working within a two platoon system. Personnel include (13 total): One Chief Communications Officer Two Communication Coordinators Eight Communicators One Day time Communicator (weekdays only) One Communication Technician Duties of the Communication Division The Communications Division is responsible for: 911 call answering Text with 911 call answering Verbal call taking Dispatching Call monitoring CAD maintenance, and Incident Management (IMS) Support Communication Coordinators are shift supervisors when on duty, and facilitate in-house training. The Chief Communications Officer is responsible for the day to day operations of the Division including: Direct contact with contracted municipalities Quality assurance Liaises with corporate information systems Geographical information systems, and FEMS MASTER FIRE PLAN

66 NRP, ambulance and OPP dispatch FEMS Communications began entering into outside fire agency agreements in the late 1950s. Currently, the Communication Division provides dispatching services to all Niagara municipalities except the City of Niagara Falls. Table 5: Municipal Communications Division Partners Municipality Area (sq.km) 2011 Population # of Stations Apparatus Full-Time Staff Part-Time Staff Fort Erie , Grimsby , Haldimand , Lincoln , NOTL , Norfolk , Pelham , Port Colborne , St. Catharines , Thorold , Wainfleet , Welland , West Lincoln , Totals , ,314

67 The Communications Centre relocated in 2013 to Station 4, at 427 Merritt Street. When it comes to emergency calls, the centre receives them in nine different ways: 911 Non-emergency/administration lines Niagara Regional Police/Ontario Provincial Police Niagara and Hamilton Ambulance Monitoring Companies/Alarm Companies Fire Monitoring of Canada (FMC) direct connection to CAD St Lawrence Seaway Via the two-way radio system, and Complainants coming directly to one of the fire halls to request help/assistance Findings/Analysis Currently FEMS has one Communication Technician maintaining the FEMS radio network and interfacing systems which also includes the 4.9 GHz tower links and sub-systems that link the towers at FEMS Station 1, FEMS Station 4, Shaver tower, Pelham and Dunnville Towers. FEMS also operates and maintains VHF radio communications equipment at Dunnville, Pelham, Grimsby and West Lincoln towers. All communication equipment (including equipment servicing the dispatch partners) is maintained by the FEMS Communication Technician. Truck devices, such as Mobile Data Terminal (MDT) units, are maintained by the Division in partnership with the NRP and St. Catharines Corporate Information Systems. The Communication Technician is also responsible for reviewing system and technology upgrades, interfacing with partner agencies for technical applications and supporting FEMS staff with technical documents and reports. The development of best practices and standards in the field of emergency telecommunications has expanded significantly in the last decade. While NFPA 1710 and 1220 remain a constant, the Communications Division looks to the Association of Public-Safety Communications Officials (APCO) and National Emergency Number Association (NENA) for regulatory compliance on all aspects of emergency communications. In 2012, the Communications Division developed a five-year plan to meet these expectations, which include the physical location of the Division, business continuity/disaster planning, qualifications of personnel, training, mission critical systems (CAD, two-way radio, telephony) and secondary systems such as NICE voice recording software and records management software (Firehouse). FEMS MASTER FIRE PLAN

68 Two Communication Coordinator positions were created out of the existing staff complement. Along with the role of coordinator they are expected to develop, conduct and implement a training program for all Communications staff. However due to the shift schedule, the coordinators work many night shifts with no interaction with the Chief Communications Coordinator. This results in an inability to provide consistent training to their respective platoons. Technology The required key components essential in a successful call-taking/dispatch process are reliable radio communications infrastructure, well trained professional Fire Communicators, and a strongly supported Computer-Aided Dispatch (CAD) system. These components are critical in meeting established service levels and providing firefighter health and safety at emergency scenes. There are two key standards for fire communications technology: Mission Critical and Public Safety Grade. Mission Critical refers to any factor of a system (i.e. components, equipment, personnel, process, procedure, software, etc.). These factors are essential for business operations to run properly. Failure or disruption of these mission critical factors will result in serious impact of business operations. Telephony including 911, two-way radio systems and CAD are the three identified Mission Critical systems for FEMS. Public Safety Grade is a conceptual term that refers to the expectation of emergency response providers and practitioners equipment and systems will remain operational during and immediately following a major disaster on a local, regional and nationwide basis. In 2015, FEMS Communications processed 17,629 active incidents and answered upwards of 62,000 telephone calls, including: 911 fire alarm system notification requests for fire prevention, and information and administration requests Although robust and stable, the Communications Division has deficiencies with regards to Geographic Information Systems (GIS) mapping and integration with 911. Funds were allocated for this upgrade, however due to the CRTC ruling for 911 texting services (SMS) for the deaf, hard of hearing and speech impaired, SMS would not be supported in the existing CAD

69 platform. The decision to upgrade CAD from a text version to a windows based platform will be completed in Once the windows based GIS CAD is launched, implementation of Mobile Data Terminals (MDTs) with automatic vehicle locater software will commence. As the dispatch service provider for 13 municipalities, GIS standards for 911 integration must be followed. Many comparable dispatch agencies have either in-house or dedicated GIS/CAD specialists who maintain the 911 road network, response districts and hydrant data. FEMS is utilizing Corporate resources at this time for go live for the new CAD platform, however, as geo location (latitude and longitude plotting) becomes more prominent with the increasing prevalence of cellphone communication, the Communications Division will require ongoing GIS support. GIS will assist FEMS in facing new challenges and increasing demands to achieve objectives and provide public safety. GIS specifically assists with optimizing service deliveries for all facets of City of St. Catharines Corporate Emergency Management Planning. This is a risk management approach and includes the following four components: Prevention Mitigation Preparedness Response Traditionally maps have been an essential tool for the fire service as they provide response/jurisdictional boundaries, station locations and hydrants. However, with new technology GIS integrates diverse data sources to capture, manage, analyze, and display geographically referenced information. When used properly, GIS can help develop and customize a detailed fire station deployment analysis for a specific community, which can help reduce response times. GIS provides the capability to FEMS Suppression personnel to access critical information and data while responding to an incident which will result in a quicker, safer and more efficient response. GIS mapping is a powerful resource for the fire service. As stated in GIS for the Fire Services, An Esri White Paper, June 2012: Geography makes it possible to focus on an area of interest. Relationships between layers of information within an area of interest quickly reveal patterns. These two features make GIS well suited for the public safety mission. Two common fire service uses of GIS demonstrate this well: map production and response time analysis. FEMS MASTER FIRE PLAN

70 Furthermore, the response time analysis provides a good example of how many fire departments use the attribute data attached to the layers in a GIS to perform spatial analysis. Response times for service calls are critical. GIS permits the powerful, yet intuitive, analysis of response times. This allows fire service leadership to ensure that response goals are being met, if not, to make appropriate adjustments. Response times for FEMS were collected and analyzed during the Master Fire Planning process by Dillon Consultants and the IAFF. These reports are contained in Appendix C and D, respectively, and can be reviewed for more information with respect to station location and response times. A dedicated professional with a GIS skillset would be an asset to not only FEMS but also for the 12 dispatch partners. The GIS mapping would provide integration of the mapping and CAD upgrades, including: Response polygon updates to conform to parcel boundaries and updating response polygons and potentially create another GIS dataset with regards to access points to properties; Setting up appropriate symbols; Labelling of datasets at specific zoom levels; Incorporating additional datasets such as railway lines/water bodies/wetlands/trails; Building footprints; Imagery; Interface with Ministry of Transportation (MTO) highway cameras; Interface with St. Lawrence Seaway cameras for bridge status; Move up algorithm; Historical data analysis; Social media integration (Twitter); and Map code books. Options: 1. Hire one Communicator with GIS/CAD capabilities to bring the staffing complement to six persons per platoon. 2. Share a full-time GIS professional with Corporate Geometrics (GIS) to maintain a monthly dataset.

71 3. Provide an educational opportunity for career development to a current Communicator. This educational opportunity provided and funded by the City of St. Catharines would allow a Communicator to achieve their GIS certificate or diploma. Conclusion Hiring an additional Communicator will ensure development and training is done in a consistent manner by allowing Communications Coordinators to work day shifts and ensuring more interaction between the Coordinators and the Chief Communications Coordinator. The GIS qualification would allow FEMS to maintain and enhance the CAD mapping platform on a weekly basis (meeting the National Emergency Number Association standard) and ensuring that data is current. Furthermore, GIS mapping would provide the FEMS and the 12 dispatch partners emergency responders the ability to access critical information and data while responding to an incident leading to a quicker, safer and more knowledgeable response. The funding for this position would be shared between St. Catharines and the 12 dispatch partners, in accordance with the communication agreements. GIS has emerged as a mission critical technology to assist fire professionals in meeting public safety requirements. FEMS MASTER FIRE PLAN

72 Station Location and Condition Assessment 13. Asset Management Recommendation Maintain current building replacement schedule as defined in the corporate asset management replacement program with priority given to renovations to Station 1 which would allow for the relocation of one aerial. Priority Ongoing monitoring and review. Background Response times for FEMS were collected and analyzed, during the Master Fire Planning process, by Dillon Consultants and the IAFF. These reports are contained in Appendix C and D, respectively, and can be reviewed for more information, in regards to station location and response times. Eighty percent of the existing fire stations were built prior to This represents four of the six fire stations, which have theoretically reached the end of their useful and functional life. St. Catharines operates its Fire Services from six fire stations. Table 6, below, identifies the year the buildings were built, the number of vehicles that respond, staffing numbers, and other comments pertaining to the station. Infrastructure The Master Fire Plan Committee through Council hired a Dillon Consulting to conduct a station location study. The Fire Association Executive, through the International Association of Fire Fighters (IAFF), also conducted a station location study and the results are as follows: The results indicate that a six station configuration is necessary in order to meet all service standards; In particular the five station configuration falls short under the first response performance measures; In most cases areas well covered by existing stations would become deficient under a five station configuration; The depth of response standards (total time of all dispatched apparatus arriving on scene) have more generous travel time thresholds than first response (initial arriving apparatus)

73 Buildings and Facilities The table below indicates the year each of the six stations were built, the number of bays and the number and type of apparatus housed at each station, as well as their manning. Table 6: Station Comparisons Station Year Built No. of Bays Apparatus Personnel Pump (Unit 10) 1 Rescue (Unit 14) 1 Platoon Chief s Van (Unit 3) 1 Spare Pump (Unit 18) Pump (Unit 15) 1 Boat (Boat 2) Pump (Unit 17) 1 Spare Pump (Unit 19) Pump (Unit 36) 1 Aerial (Unit 27) Pump (Unit 11) 1 Aerial (Unit 26) Pump (Unit 7) 1 Spare Aerial (Unit 25) FEMS MASTER FIRE PLAN

74 Findings/Analysis Station 1 (Headquarters) 64 Geneva St Build Date: 1948 Approximately 68 years-old Two storey building with partial basement (storage space) Houses Fire Chief, two Deputy Chiefs and administrative staff Platoon Chief, Assistant Platoon Chief, Captain and four firefighters Emergency generator Back up Training Room Back up Communications Centre SCBA filling station Vehicles: Pump 1 Rescue 1 Car 4 Fire Prevention investigation vehicle Spare pump Station 1 Improvements/Renovations: Washroom and lift renovations $100,000 Electrical repairs phase 1 $172,000 Electrical repairs phase 2 $87,500 Removal of fuel tanks $5,300 Two-way radio system upgrade $1,300,000 Roof replacement $25,000 Boiler replacement $427,500 Generator $228,000 Rear ramp replacement $50,000 Vent. upgrade/ladies washroom $20,000 Clean room/remodel garage $20,000 New compressor $39,000 Plumbing repairs $25,000 Hazardous Material survey $10,000 Fall arrest add-ons $15,000 Feasibility study $25,000 HVAC roof top unit $12,500

75 Station 1 Identified Deficiencies: Height of bay doors is not sufficient to accommodate modern sized apparatus Apparatus bay is not long enough to house an aerial truck Space within Station 1 is not sufficient to house Fire Prevention and Training Divisions (relocating Fire Prevention and Training personnel to Station 1 would improve efficiency and enhance customer service by centralizing operations) Training room is too small to accommodate current needs Current condition of: washrooms, dormitory, offices furnishings Currently, when new fire apparatus are purchased, FEMS is required to order custom made cabs (the driving portion of the truck where personnel sit) due to height restrictions with three of our fire halls (Stations 1, 2, 3). Custom cabs result in significant additional costs added to each new vehicle in order to accommodate these height restrictions. The cost savings of up buying a standard cab versus a custom cab can be a difference of up to $100,000. Further restrictions apply when purchasing a new truck regarding the length of the vehicle because stations are limited in the size of vehicle they can house. The replacement or renovations of Station 1 would result in a cost savings with all future fire apparatus purchases. According to the Dillon and IAFF Reports (Appendix C and D, respectively), one of the options to reduce overall response time is to house an aerial at Station 1. If implemented, the overall response times would improve by up to 25% thus improving the service to the community and helping to meet NFPA response requirements of six minutes and 20 seconds. As well, if Station 1 was to be replaced or renovated, the aerial being much larger than pump trucks, could fit into the hall and eliminate the issue with height restrictions as indicated in the previously. Centralizing Fire Prevention and Training with administrative personnel, would enhance the efficiency of the department by streamlining processes, decreasing timelines for dealing with issues and create better continuity among the three divisions. The benefits of all Senior Officers in one location would improve communications, efficiencies and addressing all issues that may arise during their daily duties. As well, should the decision be made to renovate or upgrade Station 1, allowing for an aerial to be relocated to that site, there are projected cost savings as it will result in the elimination of one aerial from the fleet. There would also be a cost savings if 8 Academy was no longer utilized by the Fire Prevention which results in a reduction in FEMS overall budget. Further, if the existing training room was redesigned (updated and enlarged) at Station 1 it would reduce the amount of time FEMS staff would require utilizing the Corporate Training Rooms at Station 4. FEMS MASTER FIRE PLAN

76 Station Linwell Rd Build Date: 1958 Approximately 58 years-old Built for Grantham Township preamalgamation Single storey Provide Water Rescue (Open/Ice/Swift) as well as, Boat Rescue for Lake Ontario, Twelve Mile Creek and Welland Canal Vehicles/Boat: Pump 2 Boat 2 Station 2 Improvements: Roof replacement $44,000 Windows, stucco, flashing $53,000 Roof top unit replacement $20,000 Exhaust fan/electrical upgrades $8,500 WC repairs $10,000 Electrical upgrades $32,000 Hazardous Material survey $5,000 Window replacement $20,000 Identified Deficiencies: Age of the facility and living conditions Increases in height and length of each bay are required to accommodate modern sized apparatus Requirements for female washroom/locker Room Current condition of: washrooms, dormitory, offices furnishings

77 Station Pelham Rd Build Date: 1958 Approximately 58 years-old A Single Story building built for Grantham Township preamalgamation Designated Technical Rope Rescue Hall Industrial, Decew Falls and surrounding areas Designated Auto Extrication Hall Provides Water Rescue (Open, Swift and Ice) Vehicles: Pump 3 Unit 17 Spare Pump Unit 19 Station 3 Improvements: ( ) Washroom Upgrade $40,000 Roof Top Unit Replacement $20,000 Windows, Stucco, Flashing $16,000 Electrical Upgrades $22,000 Kitchen Cupboards $10,000 Exhaust Fan $5,000 Exterior Masonry Repairs $30,000 Identified Deficiencies Age of the facility and living conditions Increases in height and length of each bay are required to accommodate modern sized apparatus Requirements for female washroom/locker room Current condition of: washrooms, dormitory, offices furnishings FEMS MASTER FIRE PLAN

78 Build Date: 2013 (three years old) Single storey drive through Fire Hall Provides aerial service for the City Provides back up support for highway Incidents (Hwy 406) Provides back up support for technical rope incidents Provides response for industrial incidents (General Motors, Interlake Paper) Provides back up for Brock University Vehicles: Pump 4 Ladder 4 The building houses: Communications Centre Two Corporate Training Rooms Training Division Data Base Storage Room Emergency Generator Station Merritt St. Decontamination specialized laundry room for bunker gear One Captain and three firefighters Station 4 Improvements: New Hall (2013) $5,900,000 Replace roof top unit $40,000 Communications radio system $103,000 Fuel tanks $45,000 Station 4 Identified Deficiencies: New Hall built in 2013 no current needs

79 Build Date: 2002 Station Martindale Rd. Approximately 14 years old Single storey drive through Fire Hall Provides aerial support throughout the City Provides back up support for all highway incidents (QEW and 406) Provides back up support for Water Rescue (Open, Swift and Ice) and incidents at Henley Island, Twelve Mile Creek, Welland Canal and Lake Ontario Vehicles: Pump 5 Ladder 5 Station 5 Improvements: Self-Contained Breathing Apparatus room $10,000 Compressor $40,000 Identified Deficiencies Requirement to enlarge Breathing Apparatus Room to provide more adequate space for equipment, inspections, repairs, and testing Separate Self Contained Breathing Apparatus (SCBA) Compressor Room or enlarge existing room FEMS MASTER FIRE PLAN

80 Build Date: 1977 Approximately 39 years old Single storey, two-bay Fire Hall Designated boat hall for water rescue in Lake Ontario, Twelve Mile Creek and the Canal Designated auto extrication hall Houses spare aerial and back up support for Ladders 4 and 5 Vehicles: Pump 6 Spare aerial Boat 6 Station Scott St. Station 6 Improvements: Driveway upgrades (pending) $121,000 Roof top unit replacement $20,000 Brick, parging and windows $17,000 Window replacements $6,000 Station 6 Identified Deficiencies: Need to build an addition on the west side (foundation in place) to expand the space within the fire station for more adequate storage and breathing apparatus room. Resurfacing required for front ramp to a concrete pad Requirements for female washroom/locker room Current condition of: washrooms, dormitory, offices furnishings Currently, four of the six fire stations are at least 50 years old with one station close to 70 years old. The ongoing cost on a yearly basis to maintain and upkeep these old and inefficient buildings are substantial. FEMS must ensure that the current status of the fire stations meet the needs and requirements to maintain the everyday business in a professional and safe manner.

81 Options No other options being presented for consideration at this time. Conclusion The condition of the Fire Stations need to be addressed in order to ensure that they satisfy the current needs of the Fire Service, as well as changes in technology and vehicles. Currently, three of the six fire stations are at least 50 years old along with the Training Tower being over 40 years old. The ongoing annual cost of trying to maintain and upgrade these buildings is substantial. It is recommended that the current corporate strategic asset management building program replacement schedule is maintained to address these aging facilities. FEMS MASTER FIRE PLAN

82 14. Training Tower Recommendation In 2019, construct a new Training Tower as forecasted in the Capital Budget. Priority Immediate Background The Training Tower was built in mid-1970 and has served the City and other regional fire departments for more than 40 years. An engineer s report was conducted in 2015, Appendix E, to determine the state of the tower as there is obvious wear and deterioration of the structure. The report indicated that the current condition of the tower presents life safety implications unless specific repairs are made to the structure. The tower is used for: Annual and mandatory training as required in accordance with NFPA standards Live fire, search and rescue, technical rope rescue, aerial operations, pump operations, ground ladder, forcible entry, etc.; A centralized location for all recruit training programs; All reclassification testing; By most Niagara Region Fire Departments; Host site for provincial training and conferences; and Officer development program. Findings/Analysis The repair costs range in price from $150,000 to $270,000 depending on the extent of repairs conducted. The report also indicated that the building is near the end of its life expectancy and approximate costing was provided to replace the structure. Repairs to the existing Training Tower will commence in 2017 in order to extend the life expectancy of the structure for two to four more years. This will allow Fire Services to continue to utilize the Training Tower while investigating alternative Training Tower designs, types and locations. This would benefit the City in determining the best alternatives while building reserves in order to budget for the new tower appropriately. The Training Tower is the main location for all training, testing, certification and officer development programs for FEMS. Currently additional costs are incurred for the utilization of alternate training sites.

83 The Training Tower also provides a small source of revenue annually as it is rented out to other fire departments throughout the Region for Live Fire Training, Pump Operations, and Firefighter signoffs. The current cost to use the tower is $250/day. Other departments are able to charge more as their facilities offer classrooms, showers and equipment. The City of St. Catharines currently only has the tower to offer. Moving forward, when the new tower is built, the intention is to integrate a classroom, storage room (for equipment) and shower/washrooms. This will allow FEMS to charge more for the tower rental thus generating greater revenue on an annual basis. The following outlines the revenue generated for our Tower from 2010 to 2015: 2010 $ $3, $6, $3, $1, $2,500 Throughout the Niagara Region, there are three other cities with Training Towers: Niagara Falls, Fort Erie and Burlington. Grimsby is currently building a facility, however, it is not due for completion until Of the three cities, only Fort Erie currently rents their facility to other departments and their current charge is $450/day which includes a classroom and showers. Current age and continuous required repairs to the structure has prevented FEMS from utilizing the building for training over the past two years. The unavailability of the tower for scheduled use by other municipalities has resulted in loss of revenue for the City of St. Catharines. Also, without onsite classroom facilities to facilitate theory based programs, the Training Tower usage has been limited. Further, due to the age of the structure and fuel source utilized during training, the current facility is not the most environmentally friendly options that a new structure will provide. FEMS MASTER FIRE PLAN

84 Options No other options being considered at this time. Conclusion Using training towers in other municipalities would require staff to take fire services apparatus and equipment outside city boundaries, therefore additional costs of travel time and rental of towers are estimated at approximately $650,000 annually. Immediate repairs to the Training Tower are estimated at $250,000. A functioning Training Tower could be a revenue generator through training tower rental to other municipal fire departments, as well as with the addition of classrooms for theory-based programs. A new tower will be more environmentally friendly (less water runoff into Twelve Mile Creek) in order to meet Council s mandate for environmental sustainability. The combination of a new tower utilizing an artificial fuel source (water-based smoke) will likely result in reduction of complaints related to the smoke and smell during live fire training at the tower. Council had reviewed options presented by FEMS during the 2016 budget process and approved short term repairs of training tower for In addition, Council has forecasted spending in the Capital Budget for decommissioning and replacement of existing tower within the next two years.

85 15. Fleet Replacement Recommendation Fleet Services Maintain the current Fleet Vehicle Replacement Schedule as created by Finance through a Reserve Fund which accumulates annually through the Operating Budget. Priority Ongoing monitoring and review. Background Fleet Replacement Program FEMS has a significant fleet of apparatus to deliver fire protection, and the apparatus is maintained at the highest levels. A fleet replacement schedule is currently in place that provides for the timely replacement of apparatus, ensuring a high level of operational functionality. As part of the fleet replacement program, a co-ordinated approach to setting vehicle specifications ensures vehicles purchased will have consistent specifications, which may reduce cost as well as provide frontline users with the knowledge to more effectively operate the vehicle. Maintenance requirements for fire apparatus is complex, highly technical and can affect the ability of the fire department to perform their duties. Therefore, fire apparatus must be maintained to the highest level. When an emergency vehicle is brought in for repairs, a reserved vehicle is provided to the crew. At present, a standardization of equipment program is underway to ensure overall operational effectiveness during an emergency situation. FEMS MASTER FIRE PLAN

86 Table 7: FEMS Apparatus and Vehicles Name Apparatus/Vehicle Rescue Truck Pumper Ladder Truck (Aerial)

87 Car 4 Platoon Chief Vehicle Fire Investigation Vehicle FEMS MASTER FIRE PLAN

88 Findings/Analysis Vehicles and Equipment Currently, a Depreciation Fund accumulates annually through our Capital Budget. The amount set aside annually varies based on the apparatus due to be replaced in the Fire Fleet Replacement Schedule. Monies set aside varies from $400,000 to $900,000 annually. Currently, Pumpers are to be replaced every 15 years and Aerial devices every 20 years. Cars and Self-Contained Breathing Apparatus are replaced every 10 years while Boats and other designated equipment are replaced on an as needed basis. The Depreciation Fund Schedule for the next 10 years: FEMS investigated leasing opportunities for their vehicles and found that fire apparatus were not available to be leased, however fleet vehicles were. The problem with leasing became apparent upon investigation and includes the following: The cost of leasing a vehicle as compared to purchasing was almost double in price; The cost of maintenance was more due to the requirement to have all repairs; performed at the dealership versus having City mechanics perform the repairs Leased vehicles have a limit on the annual mileage allotted and in many cases, FEMS fleet vehicles accumulated more than the allotted miles as a result of their daily use. As a result, there is a mileage penalty which makes leasing cost prohibitive; If vehicles are leased, the City doesn t qualify for specialized fleet pricing as they do when purchasing vehicles outright.

89 Conclusion The current Depreciation fund utilized by Finance ensures that all vehicles and apparatus are inspected, maintained and replaced on a regular schedule. As a result of maintaining the current vehicle replacement schedule, FEMS will continue to ensure the same quality and standard of all vehicles and apparatus purchased. Maintaining this program is critical for the following reasons: Obsolete parts as the vehicles get older, suppliers are less likely to maintain a current inventory for that model, resulting in long delays (weeks at a time) for these outdated parts. Reduced reliability no matter how diligent a preventative maintenance program is, it becomes increasingly difficult to predict what or when a part may fail. This creates safety issues for those who operate the vehicles. Increased emissions as engine parts wear, the tolerances inside the engine increase which results in increased exhaust emissions. Vibration also becomes a factor as after years of vibration within electronics and circuit boards, electrical connections tend to loosen and can cause a variety of problems. Compounded repairs repair costs can double or even triple for the same repair because of corrosion. As a vehicle ages, parts tend to seize together, especially where dissimilar metals exist resulting in increased repair times when trying to replace parts. As corrosion worsens over time repairs tend to multiply as other parts attached to defective parts fail as well. Certification Pumps must be recertified every year in order to maintain their status as a Class A pump (based on the ability to provide a certain amount of water over a certain amount of time). After so many years, parts wear and leaks form preventing the vehicles from maintaining their certification. This means that the pump can no longer adequately provide the amount of water necessary to remain as a front line vehicle. Safety - it is critical that all apparatus meet current standards for vehicle and firefighter safety. FEMS MASTER FIRE PLAN

90 16. Personnel and Facilities Recommendation: Maintain two dedicated mechanics within their own association to oversee all FEMS vehicles and apparatus and work with City staff in the design of the repair facilities at City yards to accommodate the repair and maintenance of fire apparatus. Priority Ongoing monitoring and review. Background FEMS does not have its own Mechanical Division. Fire apparatus and small fleet vehicles are maintained by the City s mechanical staff referred to as Emergency Vehicle Technicians (EVTs). Current practice requires any personnel working on FEMS fleet vehicles to obtain and maintain their Emergency Vehicle Technician certification Master Fire Plan Recommendation: In 2008, no recommendations were put forth in the MFP pertaining to Mechanical Division. FEMS currently has six frontline fire Suppression apparatus, three aerial apparatus, three reserve apparatus, one speciality apparatus (Rescue Truck) to support Technical Rescues, and one vehicle operated by the Platoon Chief on duty. The entire fleet is currently serviced by two City mechanics who report to the Deputy Chief of Operations. The EVTs have obtained specialized training qualifications and are licensed to perform maintenance and repair of all apparatus and equipment. At times there may be a requirement for EVTs to respond to incident sites should an apparatus fail at a scene. FEMS apparatus is rarely in the hot zone. On a rare occasion should there be a concern of exposure or danger, the Incident Safety Officer would refrain from permitting EVTs access to a vehicle until such time as the vehicle and environment were tested and confirmed free from any type of danger, contaminant or exposure. EVTs are required to perform regular maintenance as well as conduct or coordinate annual testing and certification, such as pump and ladder testing or Periodic Mandatory Commercial Vehicle Inspections (PMCVIs) of apparatus.

91 Both of FEMS dedicated EVTs participate on the FEMS Vehicle Committee and assist in creating the Request for Proposal (RFP), attend the successful bidder s facility, provide feedback on inspection of the product and advise as to new products, parts, equipment, modifications or features on all apparatus. It is challenging to conduct repairs on fire apparatus in the current facility at City Yards as the design of the building does not provide adequate space to house larger vehicles like fire apparatus. In the past, this has resulted in accidents occurring while trying to manoeuvre FEMS apparatus in and around other vehicles when service work is required. It also hinders other vehicles from being repaired as fire apparatus takes up more than one repair bay within the facility itself. Currently, the workload is determined by the daily deficiency reports from Suppression crews, the regular preventative maintenance program, Ministry of Transportation safety inspections performed on all vehicles, obtaining spare parts for trucks and equipment, outfitting new vehicles and their delivery as required. Findings/Analysis FEMS has a significant fleet of apparatus to deliver fire protection, and all the apparatus is maintained at the highest levels. A fleet replacement schedule is currently in place that provides for the timely replacement of apparatus, ensuring a high level of operational functionality. As part of the fleet replacement program, a co-ordinated approach to setting vehicle specifications will ensure vehicles purchased will have consistent specifications, which may reduce cost as well as provide front-line users with the knowledge to more effectively operate the vehicle. Maintenance requirements for fire apparatus is complex, highly technical and can affect the ability of the fire department to perform their duties. Therefore, fire apparatus must be maintained to the highest level. When an emergency vehicle is brought in for repairs, a reserved vehicle is provided to the crew. At present, a standardization of equipment program is underway to ensure overall operational effectiveness during an emergency situation. With continued growth, increasing complexity of apparatus and equipment and to ensure a high level of operational effectiveness, EVTs will require additional resources. FEMS MASTER FIRE PLAN

92 Two dedicated mechanics ensure that the fleet program for FEMS is adequately equipped, even if an EVT is on vacation, attending training or sick. The current remodelling of the City yards facility includes design changes to the mechanics bay. Alternative solutions are being considered to address concerns pertaining to fire apparatus, navigating in the repair bays, and the amount of room required to perform repairs due to the size of fire apparatus. Currently, there is an on-call rotation among mechanics at City yards that provides services after-hours to FEMS apparatus. Unfortunately, not all mechanics are EVT certified and incidents have occurred where the on-call mechanic is unable to repair an apparatus due to a lack of experience with fire apparatus. This has resulted in unnecessary costs (apparatus being towed to City yards) and a delay in repairs as apparatus may remain out of service until a certified EVT is able to diagnose and rectify the problem. Currently the local association for the mechanics rotate all mechanics through the on-call rotation. If agreements could be reached (through contract negotiations), only those certified as an EVT would qualify for on-call for FEMS. Options 1. Maintain two dedicated mechanics within their own union (CUPE Local 150) to oversee all FEMS vehicles and apparatus and work with City staff in the design of the repair facilities at City yards for repair and maintenance of fire apparatus enhanced by adjusting the after-hours call out protocol for City mechanics to ensure only EVTs are contacted for FEMS repairs. 2. Maintain two dedicated mechanics within their own union (CUPE Local 150) to oversee all FEMS vehicles and apparatus and work with City Staff in the design of the repair facilities at City yards for repair and maintenance of fire apparatus Conclusion Maintaining two dedicated mechanics within their own association to oversee all FEMS vehicles and apparatus and work with City staff in the design of the repair facilities at City yards to accommodate the repair and maintenance of fire apparatus will: : Reduce repair time due to limited space at City Yards; Limit accidents/incidents that have occurred due to difficulties in manoeuvring apparatus in the current facility (two incidents in 2016); Ensure continuity of repairs based on the knowledge and experience of two dedicated mechanics who have knowledge of the FEMS fleet; When repairs are required after hours, fire services is ensured of having knowledgeable mechanics on scene thus reducing unnecessary downtime and cost. As a result, consider having only certified EVT s on-call for after-hours repairs to FEMS apparatus;

93 Recommendations Summary Establishing and Regulating By-law 1) Review and specify the services and level of services provided by the fire department as part of the mandated update to the Establishing and Regulating By-law. Priority Level: Immediate. Administrative 2) Monitor all duties and responsibilities, moving forward, as the current administrative workload is approaching capacity. Priority Level: Ongoing monitoring and review. 3) Continue the current practice to review, revise and implement fees for service on an annual basis or as required by FEMS management team. Priority Level: Ongoing monitoring and review. 4) Integrate other corporate software programs to ensure connectivity and retention requirements are being met, where possible, following the full implementation of Firehouse software. Priority Level: Ongoing monitoring and review. 5) Hire one additional staff member to assume the position of Community Emergency Management Coordinator (CEMC) for the City of St. Catharines. Priority Level: Immediate. Fire Prevention Next Steps 6) Hire one full-time dedicated Public Educator for the Fire Prevention Division. Priority Level: Immediate. 7) Promote an existing staff person to enhance the current two platoon system by having a Fire Prevention Officer (FPO) assigned to each platoon. Priority Level: Ongoing monitoring and review. 8) Hire a full-time person dedicated to plans and site review in the Fire Prevention Division to support Planning and Building Services. Priority Level: Ongoing monitoring and review. FEMS MASTER FIRE PLAN

94 Training and Development Division 9) Hire one additional Training Officer to the Training Division to meet the needs identified through the full-time equivalent analysis. Priority Level: Ongoing monitoring and review. Emergency Response and Operations (Suppression) 10) Increase the staff complement in Suppression by 16 personnel with a staged implementation plan over four years. Priority Level: High 11) Set the current response time criteria to that of NFPA 1710 standard which recommends a response time to 6 minutes and 20 seconds (6:20) 90% of the time. Priority Level: Immediate. Communications 12) Hire one Communicator with GIS/CAD capabilities to bring the staffing complement to six persons per platoon. Priority Level: Immediate. Station Location and Condition 13) Maintain current building replacement schedule as defined in the corporate asset management replacement program with priority given to renovations to Station 1 which would allow for the relocation of one aerial. Priority Level: Ongoing monitoring and review 14) In 2019, construct a new Training Tower as forecasted in the Capital Budget. Priority Level: Immediate. Fleet Services 15) Maintain the current Fleet Vehicle Replacement Schedule as created by Finance through a Reserve Fund which accumulates annually through the Operating Budget. Priority Level: Ongoing monitoring and review. 16) Maintain two dedicated mechanics within their own association to oversee all FEMS vehicles and apparatus and work with City Staff in the design of the repair facilities at City yards for repair and maintenance of fire apparatus. Priority Level: Ongoing monitoring and review.

95 Implementation The following are the suggested timelines as set by the Committee pending approval by City Council: Year Recommendation Update Establishing and Regulating By-law Change Response time to NFPA 1710 standard Hire 1 Public Educator More detailed review of asset management plan regarding Fire Services facilities to ensure they are adequate for future staffing recommendations Hire 1 Communication Operator for GIS/CAD Replace Training Tower Hire 1 Community Emergency Management Coordinator (CEMC) Hire 4 Suppression personnel - first group (16 total requested) Hire 4 Suppression personnel - second group (16 total requested) Hire 4 Suppression personnel - third group (16 total requested) Hire 4 Suppression personnel - fourth group (16 total requested) Please note: recommendations that require monitoring or are considered as ongoing actions (such as the integration of software) are not included within this schedule. Any further action regarding those recommendations will be determined through the annual review of the Master Fire Plan and presented to Council for consideration. FEMS MASTER FIRE PLAN

96 Financial Considerations The table details recommendations involving financial investment by the Corporation and the estimated one-time and annual expenses, excluding wages, as assessed by the MFP Committee. Table 8: Estimated Non-Wage Related Financial Impacts # Recommendations 4 Integrate other Corporate software programs to ensure connectivity and retention requirements are being met, where possible, following the full implementation of and training on the Firehouse software. One-time expense* Annual Non-Wage Expense $0 $20,142 5 Hire one additional staff member to assume to position of Community Emergency Management Coordinator (CEMC) for the City of St. Catharines. $29,154 $3, Hire one full-time dedicated Public Educator for the Fire Prevention Division. Maintain current building replacement schedule as defined with priority given to renovations to Station 1 to allow for the relocation of one aerial. In 2019, construct a new Training Tower as forecasted in the Capital Budget. Maintain the current Fleet Vehicle Replacement Schedule as created by Finance through a Reserve Fund which accumulates annually through the Operating Budget. $29,154 $4,718 See Facilities Section See Training Tower Section See Fleet Section

97 Estimated Wages and Benefits Table 9: Financial Impact of Recommendations on Wages and Benefits Position Title Total Emergency Management Coordinator $0 $0 $97,632 $99,096 $100,583 $102,091 $103,623 $105,177 $106,755 $108,356 $823,312 Fire Prevention Officer $149,378 $153,860 $158,476 $163,230 $168,127 $173,171 $178,366 $183,717 $189,228 $194,905 $1,712,456 Fire Fighter (Group 1) $0 $0 $0 $372,555 $422,286 $480,341 $553,182 $629,074 $647,947 $667,385 $3,772,770 Fire Fighter (Group 2) $0 $0 $0 $0 $383,732 $434,955 $494,751 $569,777 $647,947 $667,385 $3,198,546 Fire Fighter (Group 3) $0 $0 $0 $0 $0 $395,244 $448,003 $509,594 $586,871 $667,385 $2,607,096 Fire Fighter (Group 4) $0 $0 $0 $0 $0 $0 $407,101 $461,443 $524,881 $604,477 $1,997,902 Communication Operator with GIS/CAD capabilities $0 $87,792 $99,511 $113,192 $130,357 $148,241 $152,688 $157,269 $166,705 $171,706 $1,227,460 $149,378 $241,652 $355,618 $748,073 $1,205,084 $1,734,042 $2,337,713 $2,616,051 $2,870,333 $3,081,599 $15,339,543 This table represents the estimated wage and benefit impacts of the MFP recommendations over the next 10 years, according to the suggested implementation schedule developed by the committee. FEMS MASTER FIRE PLAN

98

99 APPENDICES

100 Table of Contents Appendix A Additional Findings/Analysis Appendix B OFMEM Audit Appendix C Dillon Final GIS Report Appendix D IAFF Final GIS Report Appendix E Training Tower Engineer Report

101 Master Fire Plan 2017 APPENDIX A Fire Prevention 6. Public Education Public Education Program and Activities Breakdown Public Education Programs 1,122 hours Resource Allocation and Implementation 200 hours Includes pre-event inspection. Set up/break down Home Awareness set up is 80 hours on average per year Documentation 100 hours Includes lesson plans review updating, collection of data collected from questionnaires. Delivery 512 hours 236 hours direct per year average 80 hours TAPP-C 60 hours Welcome Wagon, PSW, Transit 160 hours Home Awareness, After the Fire 40 hours Downtown Inspection 56 hours Vos and City Buildings 3

102 Verification 30 hours Review of reports by CFPO and Admin Inspector Development 160 hours based on four staff receiving training including one attending Public Education Specific training/seminars Standard Operating Guideline Development 120 hours includes review, updates and maintenance Programs Delivered Include: Tapp-C PSW Superintendent Training City Buildings Vulnerable Occupancies Home Awareness Welcome Wagon Adopt a Sparky Downtown Program Transit After the Fire Smoke and CO Alarm Inspection Public Education Activities 380 hours Resource Allocation and Implementation 40 hours Includes pre-event inspection. Documentation 24 hours Delivery 236 hours Verification 15 hours 4

103 Review of reports by CFPO and Admin Inspector Development 160 hours Standard Operating Guideline Development 24 hours Programs Delivered Include: Grape n Wine CO Week EM Week Funfest Seniors Day Cooking with Brock Orientation FPW Seniors/Superstore Requests 5

104 Emergency Response 12. CAD Emergency Response Categories The type of call that a suppression crew responds to is determined by an assigned code. A full description of call types can be found in below. Call Code Call Type Average Number of Calls Average Time on Scene (minutes) Personnel Per call Apparatus Per call 1 Structure Fires 1,594 27:92 19 minimum of 5 2 Vehicle Fires 60 22:49 varies varies 3 Grass/Brush/Tree Fire 60 22:49 varies varies 4 Motor Vehicle 1,354 14: Medical Assist Calls 4,109 15: Hazardous Materials 52 18: Calls 7 Emergency Assist : Non- Emergency Assist 140 varies Water Boat Rescue 7 42: boats 10 Remote Alarms : Preliminary Response : Vehicle Fire near a 30 21: Building 31 Garbage Container 42 19: Fire 32 Garbage/Rubbish 21 21: Fires 33 Burning Complaints : Technical Rescue 8 1:42: Carbon Monoxide : Bomb Threats 26 1:42: U Unknown Call 429 varies

105 The type of call that a suppression crew responds to is determined by an assigned code. The codes are identified as the following (statistics are from and average time on scene): Code 1 - Structure Fires Structure Fires are defined as incidents that are either reported or actual fires that occur within any structure. Structures are classified through building types as indicated below: Type I - Fire Resistive - Schools, Hospitals, High Rise Buildings Type II - Non-Combustible - Factory, Warehouse Type III - Ordinary Construction - Commercial Strip Plaza s, Small Apartments Type IV - Heavy Timber - Storage Facilities, Churches Type V - Wood Frame - Residential Homes, Small Commercial Buildings In the following NFPA Standard 1710, a minimum of 14 personnel are required to adequately combat and bring a fire under control regardless of the building type. Although, the minimum manning for fighting a fire is 14 personnel, FEMS utilizes 19 personnel due to the current Incident Command model. As a result, there are only two apparatus with eight firefighters remaining in the city available to respond to any other incident. Average Number of Structure Fires from ,594 Average Time on Scene at each Incident 27:92 minutes Code 2- Vehicle Fires Vehicle fires result from a variety of different scenarios that include accidents, vehicle malfunctions (wiring issues etc.), human error (someone working on their own vehicle) all of which present similar hazards for suppression crews. Vehicle fires create issues such as exposures (if located in a garage, adjacent to a building, in close proximity to another vehicle). There are also concerns with explosions and exposure to the plastics and compounds of the vehicle when exposed to heat and flame. When a suppression crew responds to a vehicle fire with no extenuating issues (as mentioned previously), a single pump can handle the incident. If location or exposure issues arise, multiple vehicles will respond to the incident (changing to a Code 22). 7

106 Average Number of Vehicle fire from Average Time on Scene at each Incident 22:49 minutes Code 3 Grass/Brush/Tree Fire Grass/brush and tree fires are normally the result of extremely dry weather whereby a fire has been lit and left unattended, discarded items such as a cigarette ignites, lightning strikes, or for unknown reasons. In any event, this type of fire can be difficult to control or extinguish due to a number of factors. Location, for example, can create a challenge in that it is difficult for fire apparatus to access the fire if located in a field, wooded area or site without road access (along the canal). When this occurs, hand lines have to be hand bombed to the location or fire brooms may have to be utilized which adds significant time and work to proper extinguishment of the fire. In most cases, a single truck is required to extinguish a fire, however, it can quickly increase to additional vehicles being required if it becomes too large, too difficult to handle or not enough water is available to extinguish the fire. Average Number of Grass/Brush/Tree Fires from Average Time on Scene at each Incident 22:49 minutes Code 4 - Motor Vehicle Collisions Motor Vehicle Collisions (MVCs) are another type of incident not well understood by the public due to the number of considerations and duties required to effect rescue when either a single vehicle or multiple vehicle incidents occur. Upon arrival at any incident, there are three areas of stabilization to be addressed prior to commencing any type of rescue or extrication. They include stabilization of the scene, vehicle and victim. As a result, numerous personnel are required to perform all three areas to ensure that everyone involved in the area around the vehicle (known as the hot zone) are safe from any potential hazards that may exist as a result of the accident. 8

107 As a result, two pumpers and one rescue (10 firefighters) are sent to all extrications in order to safely and effectively control any accident scene. The duties of personnel involved includes a minimum of two to three firefighters using rescue tools (i.e. jaws of life, cutters, extendable rams), a hot zone officer, a pump operator, a firefighter using a hose line, an incident commander, one to two firefighters to set up equipment, cribbing to stabilize the vehicle and one to two firefighters to provide emergency medical care to any victim(s). Note: Each call involves three apparatus and 10 firefighters. Average Number of Motor Vehicle Collisions from ,354 Average Time on Scene at each Incident 14:17 minutes Code 5 Medical Assist Calls Medical assist calls account for the largest percentage of calls responded to by Fire Service. The variety of call types are vast and range from simple to complicated (i.e. difficulty breathing calls up to rescues out of a gorge with critical injuries). A normal response to a medical emergency involves one apparatus with four firefighters, however some medical calls can require up to 19 firefighters. FEMS personnel are currently trained to provide medical care that includes CPR, Advanced First Aid, defibrillation, oxygen therapy, Epi-Pen administration and cervical spine support. Although medical calls typically involve only one vehicle per incident, additional apparatus may at times be required, thus preventing FEMS ability to respond to all other types of incidents. Note: Each call involves one apparatus and four firefighters. Average Number of Medical Assist Calls from ,109 Average Time on Scene at each Incident 15:36 minutes Code 6 Hazardous Materials Calls Hazardous Materials (Hazmat) calls are considered a specialty call due to material involved, equipment required and the level of certification required in order to control an emergency or mitigate the effects of an exposed or leaking product. Hazardous Materials are broken down into five categories which incorporate the following: chemical, biological, radiological, nuclear, and explosives. Regardless of which material is involved, the requirements to bring any such incident under control are vast. 9

108 Due to the certification requirements, staff resources and cost of maintaining the training and equipment, FEMS will respond to Hazmat calls at an awareness level only. FEMS abilities are now designated that the fire service will assess ways of maintaining a safe perimeter around the incident, evacuate people and identify the source problem so as to inform FEMS response providers with as much information as possible. These providers are specialists in hazardous material response and will respond to the address, control, eliminate, and clean the affected area. While the average time on scene is not overly long, when larger incidents occur, the average time on scene can be numerous hours. Note: Each call involves 15 personnel and five apparatus. Average Number of Hazardous Materials Calls from Average Time on Scene at each Incident 18:09 minutes Code 7 - Emergency Assist An emergency assist call involves one pump (apparatus) and four firefighters. This type of call requires an emergency response but encompasses a wide variety of calls. Some examples of an emergency assist include a hydro pole on fire, a fallen tree resting on power lines, a smoke or carbon monoxide alarm activation in a home or a child locked in a car. All require an emergency response but only one apparatus. When the city experiences heavy snowfall/blizzards or heavy thunderstorms or windstorms, FEMS experience numerous emergency assist calls. During these events, it taxes the FEMS Communications Centre but more importantly can tie apparatus up at numerous small incidents making it difficult to respond to larger incidents when they occur. Often times, a recall of off-duty firefighters is required to assist with the high volume of calls. Note: Each call involves four personnel and one apparatus. Average Number of Emergency Assist Calls from Average Time on Scene at each Incident 23:06 minutes Code 8 Non- Emergency Assist A non-emergency is an incident that requires the presence of the fire department, however, in a non-emergency response. Some examples include a low battery warning in a smoke/carbon monoxide alarm or someone who has locked themselves out of their home or vehicle. As a 10

109 result, one apparatus and four firefighters will respond to the incident without activating their lights or sirens to investigate the incident. Note: Each call involves four personnel and one apparatus. Average Number of Non-Emergency Calls from Average Time on Scene at each Incident varies Code 9 Water Boat Rescue Water and boat rescue are considered a specialty type response due to the training and certification required to perform either rescue. Boat rescue requires boat licencing and certification which requires personnel to perform theoretical and practical training/testing in order to meet national standards for response. Water rescue involves three types of rescue that include: ice water, swift water and shore based rescue. Each type requires numerous hours of in-class and in-water training. Due to the requirements of each specialty, annual recertification is required for all personnel in order to maintain proficiency and certification. Currently, FEMS responds to Lake Ontario, Twelve Mile Creek and the Welland Canal for both boat and water rescue. FEMS also provide assistance in the form of an automatic aid agreement with Niagara-on-the-Lake Fire Department and Thorold Fire Department as they do not currently engage in either boat or water rescue. When either boat or water rescue occurs, two pumps with boats (National Standards require a back-up boat for all emergencies), incident commander and nine firefighters are required to effect rescue. Note: Each call involves nine personnel, three apparatus and two boats. Average Number of Boat Rescue Calls from Average Time on Scene at each Incident 42:50 minutes Code 10 Remote Alarms Remote alarms are a very common emergency response for most departments. Remote alarms occur when, for example, a residential home, commercial building, high rise or care facility has alarm activation for an unknown reason. 11

110 The alarm may have activated due to an actual fire or may have inadvertently activated due to vibration in the system, dust on one of the detectors, a short-term loss of power or someone working in the building accidently activating the alarm. In any case, five apparatus and 15 firefighters must respond to the alarm activation until it is determined a false alarm has occurred or a real incident exists. In either event, remote alarms involve a large percentage of the fire department s annual response statistics. Although the average time on scene may not be overly long, when actual fire incidents occur from a remote alarm, the average time on scene will increase dramatically. Note: Each call involves 15 personnel and five apparatus. Average Number of Remote Alarms from Average Time on Scene at each Incident 13:26 minutes Code 11 Preliminary Response A preliminary response occurs when no confirmation of a real incident has occurred. As a result four apparatus and 13 firefighters are sent to investigate the incident. Upon arrival of the first crew, they will either confirm a real incident or will either downgrade (slow down subsequent arriving apparatus to proceed to the incident with no lights or sirens) or cancel the alarm altogether. In either case, a preliminary response enables the Communications Division to send fewer vehicles when either numerous calls are ongoing simultaneously or when FEMS has a large single incident (i.e. structure fire). Due to the lack of remaining apparatus and personnel, FEMS requires fewer vehicles and staff at this type of incident. Although the average time on scene may not be overly long, when actual fire incidents occur from a preliminary response, the average time on scene will increase dramatically. The following statistics provide the average number of preliminary response calls from (this code was only created in 2013) and the average time on scene which involves 12 personnel and four apparatus to each call: Average Number of Preliminary Response Calls from Average Time on Scene at each Incident 16:54 minutes 12

111 Code 22 Vehicle Fire near A Building In the event that the vehicle on fire causes the structure to ignite, far more personnel are going to be required to control this type of fire. Rather than a single hose line to combat the vehicle fire, several additional lines may be required in order to bring the structure fire under control as well. As a result, when a Code 22 occurs a full response of six apparatus and 19 firefighters will respond to this type of incident until it is confirmed as to whether a single apparatus can control the fire or if additional apparatus and personnel are required due to the structure igniting as well. Although the average time on scene may not be overly long, when actual fire incidents occur as a result of the fire spreading to the structure, the average time on scene will increase dramatically. Note: Each call involves 19 personnel and six apparatus. Average Number of Vehicle Fires Near Building Calls from Average Time on Scene at each Incident 21:16 minutes Code 31 Garbage Container Fire Garbage container fires are viewed as simple fires that are easily extinguished with little water required due to being confined to an enclosed steel box. The problem with this type of fire is the unknown objects, liquids and hazards that firefighters face due to the numerous items people discard in a dumpster. As a result, firefighters must ensure a defensive approach when dealing with this type of fire to ensure their safety and protection from hazards that are often found within a dumpster. Normal response to a garbage container fire is one pump and four firefighters, however depending on the products found within the container an additional pump may be required to provide additional water if a fire hydrant is not readily available. Note: Each call involves four personnel and one apparatus. Average Number of Garbage Container Fires from Average Time on Scene at each Incident 19:32 minutes 13

112 Code 32 - Garbage/Rubbish Fires Garbage/rubbish fires are incidents that can occur in numerous locations. It could range from a garbage dump to a vacant lot or a back yard. The difficulty at times can be gaining access to the location with a fire vehicle. As a result, long hose lays or the use of foam (i.e. used to suppress liquids such as gasoline or paint thinner) must be used to reach a location or suppress the fire which can create the need for additional vehicles or personnel. Regardless, an initial response to any garbage/rubbish fire includes one pump and four firefighters, however it can grow into a full scale response with up to four vehicles and 15 firefighters if the incident is large enough. Note: Each call involves four personnel and one apparatus. Average Number of Vehicle Fires from Average Time on Scene at each Incident 21:30 Code 33 Burning Complaints Burning complaints are calls that FEMS receives regularly pertaining to someone burning or allegedly burning illegally in a yard or on personal property. Typically if someone is open burning in their yard, the fire department is called to investigate the fire to ensure that it falls within the parameters of the open burn bylaw or not. In the event that the open burn is deemed legal, the officer in charge obtains personal information and leave a pamphlet with information outlining the bylaw however if the fire does not fall within the open burn bylaw, the fire will be extinguished and charges can be laid. Burning complaints may also include the smell of something burning from an area without an exact address. As a result, the fire department must investigate the area to determine if a problem exists. Often FEMS receives complaints pertaining to burning in rural areas whereby farmers are permitted to have open burns due to the difference in zoning. In either case, all burning complaints are investigated by a single pump and four firefighters. Occasionally, the need may arise for additional equipment respond due to the need for additional water or staff resources. Note: Each call involves four personnel and one apparatus. Average Number of Burning Complaint from Average Time on Scene at each Incident 15:40 minutes 14

113 Code 43 Technical Rescue Technical rescue most often refers to a rope rescue. The rescues often occur in the area of Decew Falls and involve the removal of victims using a simple system involving rope, harness and some basic equipment. Other times the removal may require complex equipment, set up, staff resources and time. A removal may take as long as two to three hours to extricate a person from the gorge depending on their location and injuries sustained. Other technical rescues can involve confined space (limited air supply may be available), trench rescue or industrial accidents that involve the use of rope and specialized equipment to extricate and remove a victim from an entrapment. When technical rescues occur, a minimum of six apparatus and 19 firefighters are required to execute a rescue due to the amount of set up and staff required. Note: Each call involves 19 personnel and five apparatus. Average Number of Technical Rescue from Average Time on Scene at each Incident 1:42:25 minutes Code 52 Carbon Monoxide Investigations Carbon monoxide investigations (CO Investigations) are incidents that occur frequently for the fire department due to the lack of education with many residents. The majority of calls normally involve a carbon monoxide detector that has reached its life capacity and simply requires replacement. On the other hand, FEMS also respond to incidents with residents experiencing the effects of mild to serious carbon monoxide poisoning. In either event, upon arrival at any CO call, firefighters must take every precaution to protect themselves by always assuming that CO exists within the structure. As a result, breathing apparatus, monitors (that measure CO levels), and full protective equipment must be used to investigate the incident and ensure the environment is safe for both the occupants and themselves. When a carbon monoxide investigation is required, one pump and four firefighters will respond to the incident to investigate. Occasionally, additional equipment/staff are required to provide patient care, ventilation of the structure and at times removal of a defective appliance which is the root cause of the C/O issue. Note: Each call involves 19 personnel and five apparatus. 15

114 Average Number of CO Investigations from Average Time on Scene at each Incident 19:52 minutes Code 71 - Bomb Threats Bomb threats are an assistance call for fire services based on a need by Niagara Regional Police (NRP) to be on hand in the event of an actual explosion. FEMS can provide fire protection, medical assistance and specialized equipment in the event that forcible entry is required. Bomb threats do not occur often, however there is the odd occasion when fire personnel happen upon suspicious packages/objects that require the NRP to be contacted immediately and FEMS will ensure the area is evacuated and safe until the bomb unit arrives to investigate. A normal response for a bomb threat is one pump, four firefighters and the platoon chief. There has on occasion been the need for multiple apparatus and personnel based on the location of a suspected item or when more than one suspicious item has been discovered. Note: Each call involves 19 personnel and five apparatus. Average Number of Bomb Threats from Average Time on Scene at each Incident 1:42:21 minutes Code U Unknown 911 Calls An unknown 911 is an alarm activation that comes into the Communications Centre but is not a specific emergency. It can be a medical call in which someone called but fell unconscious and could no longer communicate. It could be a fire in which the caller dialed 911 and left the building to escape the fire. It could also be a police incident whereby a person dials 911 but refrains from speaking so as not to attract attention from the intruder. As a result, FEMS sends one pump with four firefighters to investigate all unknown 911 calls. The investigation may grow to include additional apparatus and personnel in the event of a real emergency, however this is considered a single pump response until it is investigated. Note: Each call involves 19 personnel and five apparatus. Average Number of Unknown 911 Calls from

115 APPENDIX B Office of the Fire Marshal and Emergency Management Review of Fire Protection Services (Fire Prevention and Public Education) in the City of St. Catharines March 5, (St. Catharines)

116 Table of Contents 1.0 Executive Summary Review Background Legislative Authority Scope Review Methodology Fire Protection and Prevention Act, Fire Protection Services OFMEM s Three Lines of Defence Municipal Responsibilities - Clause 2.(1)(a), Fire Protection and Prevention Act Municipal Responsibilities - Clause 2.(1)(b), Fire Protection and Prevention Act, Municipal Fire Risk Administration and Governance Records Management Public Fire Safety Education Fire Safety Inspections and Enforcement Pre-Incident Planning Fire Investigations Training Office of the Fire Marshal and Emergency Management Conclusion Municipal Fire Protection and Prevention Responsibilities Legislative Requirements and Recommendations Appendices Appendix Appendix

117 1.0 Executive Summary 1 The Office of the Fire Marshal and Emergency Management s municipal review process is utilized to evaluate components of the delivery of fire protection services 1 by municipalities. The purpose is to assess municipal compliance with legislative responsibilities as per Part II of the Fire Protection and Prevention Act, 1997 (FPPA), Chapter 4, specifically those pertaining to certain components of fire prevention 2 as stated in Clauses 2.(1)(a) and 2.(1)(b) of the Act. 2 The FPPA places responsibility with municipal council to determine the level of fire protection services the fire department will provide. The aforementioned clauses outline the municipality s legislated requirements, including establishing public education and fire prevention programs. 3 This review has determined that the City of St. Catharines could improve compliance with certain legislated requirements of the FPPA. However, the City of St. Catharines continues to improve its service delivery on an ongoing basis. 4 The Office of the Fire Marshal and Emergency Management (OFMEM) has identified the following: Nine Legislative recommendations to improve compliance with the FPPA; Four Municipal recommendations to improve compliance with the Municipal Act; and Sixteen recommendations to provide direction for the optimization of their municipal fire protection delivery model. 5 It is the responsibility of the City of St. Catharines to take the necessary steps to ensure compliance with the FPPA by prioritizing and developing a council approved and monitored implementation plan. The said plan will be submitted to the OFMEM for review and follow up within a timeframe agreed upon by the Council and the OFMEM. 2.0 Review Background 6 The OFMEM met with City of St. Catharines municipal officials on May 21, 2014, and it was mutually agreed by both parties that St. Catharines would benefit from a review of the municipality s fire protection services as outlined above. 7 On May 29, 2014, correspondence from the OFMEM to the mayor and council outlined the scope of the review. On July 7, 2014, the review team gathered in St. Catharines to initiate the process of data collection and conducted interviews with fire service and municipal personnel. 1 Fire protection services includes fire suppression, fire prevention, fire safety education, mitigation and prevention of the risk created by the presence of unsafe levels of carbon monoxide and safety education related to the presence of those levels, rescue and emergency services, communication in respect of anything described in clauses (a) to (c), training of persons involved in providing anything described in clauses (a) to (d), and the delivery of any service described in clauses (a) to (e); ( services de protection contre les incendies.) 2 For the purposes of this report components of fire prevention refers to public fire safety education, fire safety inspections and Fire Code enforcement, and fire investigations activities. 3

118 8 The current organizational structure of the St Catharines Fire Services was provided to the review team. In support of the scope of the review the hierarchal structure of the Fire Prevention Division was reviewed and is described as follows: Chief Fire Prevention Officer (1) Fire Prevention Officer (FPO) (1) currently on leave since January 2014 Senior Fire Inspector (1) currently acts as FPO Fire Inspector (5) 3.0 Legislative Authority 9 This review was conducted under the authority of Part III of the Fire Protection and Prevention Act, which states: 4.0 Scope Part III Fire Marshal - Powers of the 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. 10 As indicated in the May 29, 2014 letter, this review evaluated the following: Establishing and Regulating By-law (determine the level of fire prevention services in the City of St. Catharines); Risk Assessment (utilizing the fire risk sub-model and the integrated risk model) to identify all high and extreme risks in the municipality; Fire Inspection practices and protocols (training, frequency, enforcement option, utilization of non-traditional staff such as fire suppression) Public Education programs development and utilization; Fire investigation to assist in improving fire service delivery gaps; Evaluation of current pre-plans in place and identify gaps that would benefit from preplanning; developing pre-plans for all high and extreme risks (enhancing the health and safety for staff and residents/occupants); and Interaction between fire services and various city services (improving response to various issues.) 5.0 Review Methodology 11 The Fire Marshal s review team uses a methodology based on principles established by the Ontario Ministry of Community Safety and Correctional Services, 3 the OFMEM and other established public oversight and regulatory processes. Review team members are assigned tasks and collect information 3 See the Ontario Major Case Management Manual, Ministry of Community Safety and Correctional Services, October 1,

119 focusing on specific issues pertaining to the provision of fire protection services within a given municipality. 12 As benchmarks, the review team then applies OFMEM Public Fire Safety Guidelines and other publicly available publications and programs to analyze the information collected. The recommendations contained within this report are based on this methodology. 6.0 Fire Protection and Prevention Act, Fire Protection Services 13 The Fire Protection and Prevention Act, 1997 establishes responsibility for fire protection services. For example, in Part II - Responsibility for Fire Protection Services, the legislation outlines municipal responsibilities as follows: Municipal responsibilities 2.(1) Every municipality shall, (a) establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and (b) provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. 14 Furthermore, the fire chief s responsibilities are outlined: Fire chief, municipalities 6.(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. A fire chief also has specific authorizations in sections 14, 19 and 20 of the FPPA. 6.1 OFMEM s Three Lines of Defence 15 As a principled approach to delivering effective and efficient fire protection services, the OFMEM advocates the Three Lines of Defence to prevent and mitigate fire loss, injury and death, and promoting firefighter safety within a community. The Three Lines of Defence are: 1. Public Fire Safety Education 2. Fire Safety Standards and Enforcement 3. Emergency Response 16 In January 2014, the Ontario government enacted two regulations pursuant to the FPPA to protect Ontarians. These regulations 4 are further supported by three compulsory directives 5 issued under the provisions of the FPPA Chapter 4, Clause 4 O. Reg. 364/13 Mandatory Inspection Fire Drill In Vulnerable Occupancy; O. Reg. 365/13 Mandatory Assessment Of Complaints And Requests For Approval 5 Fire Marshal Directive Registry of Vulnerable Occupancies Fire Marshal Directive Vulnerable Occupancies Fire Drill Scenarios, Fire Drill Observations, Fire Safety Inspections (PDF version 343Kb) (Inspection Checklist) Fire Marshal Directive Inspections Of All Buildings 5

120 9.(1)b to perform activities that enhance the requirements of Clauses 2.(1)a and 2.(1)b. 6.2 Municipal Responsibilities - Clause 2.(1)(a), Fire Protection and Prevention Act 17 Public Fire Safety Guidelines are issued under authority of the Fire Marshal. These guidelines establish compliance requirements with Clause 2.(1)(a) of the FPPA. The OFMEM s minimum acceptable model 6 for public fire safety education and fire safety inspections states that a municipality should provide and maintain the following programs and activities for annual compliance: a risk assessment; a smoke alarm program, including home fire escape planning; and the distribution of public fire safety education materials. 18 To determine compliance with Clause 2.(1)(a), the following was requested: the risk assessment for the City of St. Catharines; the municipality s smoke alarm program, including home fire escape planning; and documentation related to the distribution of public fire safety education information and the implementation of Public Fire Safety Education Programs. 19 To determine compliance with the three Fire Marshal directives mentioned in Paragraph 16, the following was requested: documentation of fire safety inspections that were conducted upon complaint or request; documentation supporting the registry of vulnerable occupancies; and documentation to support the annual requirements for fire drills and inspections in vulnerable occupancies. 6.3 Municipal Responsibilities - Clause 2.(1)(b), Fire Protection and Prevention Act, In addition to Clause 2.(1)(a), a municipality is responsible for providing other fire protection services it determines may be necessary in accordance with its needs and circumstances as per Clause 2.(1)(b). In order to determine what other fire protection services are necessary, a municipality should identify its fire risks through the completion of a comprehensive fire risk assessment utilizing the OFMEM s Fire Risk Sub-Model 7 and the Integrated Risk Management Web Tool. The comprehensive fire risk assessment provides the basis for establishing the needs and circumstances in the municipality. 6 See the Office of the Fire Marshal s Public Fire Safety Guidelines (A-D)-03 and (A-D) OFM Fire Risk Sub-Model - June Model/Fire_risk_submodel.html 6

121 21 As the principal adviser, the fire chief is ultimately responsible for assessing the community fire risk and developing recommendations regarding the delivery of fire protection services to council. Considering the municipality s needs and circumstances, council is responsible for establishing and determining the level of fire protection services that will be delivered by the fire department to address identified risks. 22 The review team also evaluated the fire service s undertakings related to Clause 2.(1)(b) by assessing: 6.4 Municipal Fire Risk 1. The municipality s fire risk; 2. The Establishing and Regulating By-law and fire-related by-laws; and 3. Fire protection services provided in the municipality as identified in Section 4.0 Scope. 23 Assessing fire risks within a community is the process of examining and analyzing the relevant factors that characterize the community, and applying this information to identify potential fire scenarios that may be encountered. A fire risk assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences. This information serves as the basis for formulating and prioritizing fire risk management decisions to reduce the likelihood of these events from occurring and to mitigate the impact of these events should they occur. 24 The Fire Risk Sub-Model assesses fire risk utilizing seven components to examine and analyze the relevant factors that characterize the community. The Sub-Model assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences. High and extreme risks (major and catastrophic in the sub-model) should be assessed by the fire department to determine best mitigation strategies when applying the Three Lines of Defence. High risks may include occupancies such as a non-sprinklered nursing home. Extreme risks may include industrial occupancies in communities that have experienced urban encroachment next to a fertilizer plant. 25 The Integrated Risk Management Web Tool (IRM) is intended for municipal and fire service decision-makers. The tool will assist municipalities in fulfilling the responsibilities prescribed in Section 2 of the Fire Protection and Prevention Act, 1997 (FPPA). 26 The IRM Web Tool can be used by all Ontario s municipalities and fire departments to determine building fire risks in their respective communities by taking into account building characteristics (Building Factors) and the Three Lines of Defence against fire. 27 The review team concluded that St. Catharines does not have an approved risk assessment. 7

122 28 The review team found no evidence of any mechanism to measure fire risk within the municipality which would determine what fire protection services will be delivered by the fire department. Provincial Legislative Recommendation #1 The municipal council of the City of St. Catharines shall complete a comprehensive fire risk assessment in the municipality to identify high and extreme risk buildings/occupancies and develop fire prevention programs and activities based on those identified risks. 6.5 Administration and Governance 29 The Establishing and Regulating By-law is a council level document outlining municipal policy for the fire protection services it provides to meet the community s needs and circumstances. The primary issues addressed in an Establishing and Regulating By-law shall include policy direction in these areas: legislative requirements that may impact the delivery of fire protection services (i.e. of MOL, MOE); Fire Marshal directives; Industry best practices (i.e. Section 21 Guidance notes, NFPA standards); general functions and core services to be delivered; goals and objectives of the department; general responsibilities of members; organizational structure; authority to proceed beyond established response areas; authority to apply costs to property owner for fire investigations; and authority to effect necessary department operations. 30 St. Catharines provided a document that could be interpreted as an E & R By-law titled Preventing Fire, the Spread of Fires and for the Preservation of Life (No , November 22/76). This by-law is currently being used as their E & R By-law, but should be updated to reflect current service levels and provincial legislation. Municipal Recommendation #1 The municipal council of the City of St. Catharines shall develop and implement an updated Establishing and Regulating By-law consistent with the legislative requirements of the Municipal Act and FPPA. 31 Council is responsible for developing and passing by-laws that may impact fire protection services within the municipality. These may include by-laws to authorize: designation of the fire chief and deputy fire chief positions; fire protection agreements; participation in Mutual Aid System; communications agreements; jointly managed and operated services (such as a fire department); the sale or purchase of fire protection; fire hydrants; 8

123 fire access routes; open air burning; fees-for-service; cost recovery for demolition during fires and investigations; the safe handling, storage and sale of fireworks; and anything to which the fire department requires council authorization. 32 In reviewing the existing municipal fire related by-laws the following discrepancies and/or deficiencies were identified: By-law (No ) Fee for Service outlines the process and fee schedule for the recovery of costs however, the fire service does not take measures to recover costs; By-law (No ) Fire Route Parking requires updating to reflect current environment; By-law (No ) Fire Works lacks proper designation and fails to identify a process that allows for the enforcement of the by-law; and By-law (No 5476 dated 13 March 1950) allows for the Fire Chief to discipline or dismiss members of the fire service. This By-law is antiquated and may not reflect current fire department operations. 33 Furthermore, the following fire related by-laws should be considered to ensure the effective and efficient delivery of fire protection services: Open Air Burning By-law; Appointment of Deputy Fire Chief(s); Appointment of Fire Prevention personnel as municipal by-law officers for the enforcement of fire related by-laws; and Fire Hydrants. Municipal Recommendation #2 The municipal council of the City of St. Catharines shall ensure that existing by-laws that have established legislative requirements or appointments are reviewed, amended or repealed as required. Recommendation #1 The municipal council of the City of St. Catharines should ensure that fire-related by-laws be developed, implemented and enforced based on the municipalities requirements and be reviewed regularly to ensure currency, accuracy, relevancy, and effectiveness when delivering fire protection services. 34 Policies and Operating Guidelines Policies and operating guidelines are used by the fire department to ensure that fire department personnel perform services in a specific and routine manner or to promote continuity and consistency of operations. A policy is a principle or rule to guide decisions and achieve rational outcomes and a guideline is a statement by which to determine a course of action. The documents outline the performance or behaviour of fire department staff, whether 9

124 functioning alone or in groups. The creation of policies and guidelines could protect the fire department and municipality from civil lawsuits, enhance safety, training and orientation, ensure consistent levels of performance, and may demonstrate due diligence. The review team evaluated existing guidelines that were provided pertaining to fire prevention and public education activities (some in Draft form), including fire safety inspections, investigations, Fire Code enforcement, pre-planning, risk assessment and records management for fire prevention and the following issues were identified: fire prevention structure and identified positions/responsibilities does not reflect the current approved organizational chart; specific fire prevention policies, programs, and guidelines for fire prevention staff are not clearly outlined and/or not being conducted by the fire service; inconsistent information regarding who is responsible for developing policies and operating guidelines; inconsistent information about Fire Code enforcement; in some cases, fire department personnel are not aware of, and are not following, the policies and operating guidelines; policies or operating guidelines outlining the process for conducting routine, request or complaint inspections need to be developed; policies or operating guidelines outlining the development and implementation of public fire safety education programs and activities need to be developed; policies or operating guidelines outlining consistent fire investigation activities need to be developed; and policies or operating guidelines governing fire service records management that aligns with the municipal retention by-law needs to be developed. Recommendation #2 The municipal council of the City of St. Catharines should ensure that fire service policies and operating guidelines are developed or updated to reflect the delivery of approved core services in the Establishing and Regulating By-law. The fire service staff responsible for fire prevention activities receives training prior to the implementation of fire prevention policies and operating guidelines. 6.6 Records Management 35 Fire department records are municipal records and therefore subject to the Municipal Act and the Municipal Freedom of Information and Protection of Privacy Act. Under the Municipal Act, municipalities have a legislated responsibility to have a records retention schedule which includes fire department records. These records should be located centrally within the fire department to control and prevent unauthorized access. 36 St. Catharines municipal records retention by-law (By-law No ) outlines records retention requirements for fire department files. However, fire department personnel were not entirely familiar with the by-law. 10

125 37 The current methodology used in the Fire Prevention Division to collect and store information is held in both the electronic form (Amanda system) and in a hard copy within the Division. 38 During the course of their duty Fire Prevention staff is not provided with similar devices to record and store data as other municipal employees which leads to the duplication of documentation. 39 A primary concern was raised by Fire Prevention staff regarding the security of data imputed into Amanda could be easily accessed by other municipal staff. It was noted during the review process that an upgrade to the Amanda system has been purchased and will be implemented on a priority basis. 40 Due to the absence of a designated Responsible Person in accordance with the by-law Fire Prevention personnel are not consistent in their methods of records retention and management. For example, personnel indicated that they use different enforcement methods and documentation to address Fire Code violations identified during fire safety inspections of buildings. 41 The absence of administrative staff during normal business hours, with the exception of Wednesdays creates difficulties with both the inspection staff and the general public. Inspection staff is burdened with a heavier administrative workload and delays in inspection processes. The public s access to the fire prevention office for such items as fire safety plans approval or to request or file a complaint inspection is hindered. The general public is directed to attend the headquarters building for their inquiries when the office is not staffed. Recommendation #3 The municipal council of the City of St. Catharines should ensure that fire prevention staff be provided with the necessary devices to perform their duties in an efficient and consistent manner, with priority being given to upgrading the Amanda system. Municipal Recommendation #3 The municipal council of the City of St. Catharines shall conduct an audit of Fire Prevention records to confirm compliance with By-law (No ) Preservation, Retention and Destruction of Records. Recommendation #4 The municipal council of the City of St. Catharines should designate appropriate 6.7 resources Public to ensure Fire Safety the Fire Education Prevention Division operates in a professional, consistent and efficient manner to meet the increasing municipal requirements of the community. 6.7 Public Fire Safety Education 42 A municipality s public fire safety education programs should be based on the needs and circumstances as determined by its comprehensive fire risk assessment 11

126 and the results of fire investigations (i.e. the cause, origin and circumstances of fires). 43 The review team determined that no formal evaluation or analysis of fire investigations conducted by fire service personnel is utilized in the development of fire safety education programs. Fire response data is not considered when determining fire safety education programs. 44 Fire service personnel could not identify how they assess, evaluate and prioritize risk within the community. Public fire safety education programs and activities are not risk based and no formal process for identifying high and extreme risks is in place. 45 The review team found that there is no formal smoke alarm or home fire escape planning program implemented or approved. 46 No records or tracking of public fire safety activities exist. 47 Several factors have hindered the development of routine, targeted and proactive public fire safety education programs and activities, including: the lack of an updated comprehensive fire risk assessment; no analysis of post-fire information from fire investigation activities or fire response data to determine fire prevention activities; no tracking/evaluation process to validate and revise public fire safety education programs and activities according to the determined needs and circumstances of the municipality; the lack of operating guidelines or policies outlining the development, implementation and tracking of public fire safety education activities; and low priority placed on public fire safety education by the fire department. Recommendation #5 The municipal council of the City of St. Catharines should ensure that there is a policy describing how public fire safety education activities are developed, delivered and documented for the identified risks in the municipality. Provincial Legislative Recommendation #2 The municipal council of the City of St. Catharines shall ensure the development and implementation of a smoke alarm program, including home fire escape planning. 6.8 Fire Safety Inspections and Enforcement 48 In accordance with legislative requirements, municipalities are now compelled to ensure all complaint and requests for inspections are assessed and conducted, if required. Furthermore, occupancies that house vulnerable persons compel Chief Fire Officials to conduct on an annual basis an inspection, fire drill and fulfill the registry requirements with the OFMEM. 12

127 49 Through a lens of risk management, the municipality should adopt and implement a routine fire safety inspection program for high and extreme risk buildings identified within their community based on a comprehensive fire risk assessment. 50 The review team concluded that fire safety inspections are not conducted according to risk; fire risk assessments are not used to determine which buildings are inspected or the frequency of inspections. A building when in conformance with legislated Codes and Standards requirements will perform according to its occupancy classification and design and will enhance public and firefighter safety. 51 As identified in the 2014 Action Plan for Fire Prevention Division Building Permits and Business License inspections are the priority. According to this Action Plan the Fire Prevention Division focuses inspection activities on municipal priorities as opposed to risk. 52 The FPPA identifies specific persons as Assistants to the Fire Marshal and as such have a statutory role and shall follow the Fire Marshal s Directives in carrying out the requirements under the FPPA. Furthermore, there is an expectation of the de facto statutory duty of the Provincial Offences Officer. 53 In accordance with Technical Guideline Fire Safety Inspections and Enforcement an Inspector s notes will form part of the evidence to be disclosed as required when exercising options for remedying Fire Code contraventions and or fire hazards. Accurate, detailed and complete notes give credibility to the Inspector s testimony when required to give evidence in court. In all circumstances, notes must be protected from revisions, amendments or deletions after they have been completed. It is important that in courtroom proceedings the notes reflect an accurate account of observations made at the time of the inspection. Provincial Legislative Recommendation #3 The municipal council of the City of St. Catharines shall develop and implement a formal inspection policy to conduct inspections based on a complaint or request. Provincial Legislative Recommendation #4 The municipal council of the City of St. Catharines shall develop and implement a formal policy for vulnerable occupancies in compliance with the legislative requirements. Recommendation #6 The municipal council of the City of St. Catharines should ensure a routine inspection policy be developed and implemented based on a comprehensive risk assessment. Recommendation #7 The municipal council of the City of St. Catharines should ensure Fire Prevention inspection activities are risk based. 13

128 54 The review team examined fire safety inspection files. The following inconsistencies were identified: Enforcement option of utilizing an Inspection Order and Notice of Violation for the same building for non-compliance violations; Inconsistent application of enforcement options by fire prevention staff that may be attributed to a lack of training; Initial inspection on file with non-compliance violations remain outstanding; Random spot inspections were conducted by team members to determine compliance with the Fire Code, no major violations were identified however, classification of building occupancy was often incorrect; The lack of property data and follow-up made it difficult to evaluate the status of the files; Fire Safety Plans (FSP) are missing, incomplete or out of date on numerous files; and Inconsistent approval process for FSPs. 55 The FPPA allows a municipality s Chief Fire Official and/or Fire Chief to delegate their authority. Written documents supporting the Fire Chiefs delegation of authority were provided however, incorrect FPPA/OFC references were used. Provincial Legislative Recommendation #5 The municipal council of the City of St. Catharines shall ensure that all Fire Prevention property files are reviewed in consultation with the building department for accuracy, consistency, correct building classification and to affirm that all outstanding fire code contraventions or fire hazards are remedied and the building is compliant with the Ontario Fire Code. Provincial Legislative Recommendation #6 The municipal council of the City of St. Catharines should ensure that Fire Prevention staff apply the enforcement options consistently pursuant to FPPA and Provincial Offences Act. Provincial Legislative Recommendation #7 The municipal council of the City of St. Catharines shall ensure that a thorough review of property files is conducted to ascertain all buildings that require a fire safety plan are present and approved by the Chief Fire Official or their designate as outlined in the FPPA and Ontario Fire Code. 56 Interaction between fire department personnel and officials from municipal building departments is important to ensure fire safety requirements of the Ontario Building Code are achieved in all buildings. Currently building and fire departments are jointly reviewing the municipal business license process. Some of the areas of concern being addressed are: The overlapping of inspector duties (i.e. compliance letters); Building inspector inability to access fire prevention staff schedules to coordinate joint inspections; and Fire inspector notes not entered into Amanda system. 14

129 57 Members of the review team interviewed a member of the City of St. Catharines Department of Planning and Development to determine the interaction with the fire department. It was confirmed that there are no policies or formal procedures outlining interaction with the fire service. A representative from the Fire Prevention Division attends meetings on a regular basis to provide input on the new Legislation Policy Initiative. 58 The Ministry of Municipal Affairs and Housing requires those involved in the enforcement of the Building Code Act and Regulations as well as people involved in the design and supervision of construction must keep abreast of new techniques and current Building Code requirements. Detailed technical training courses are intended to assist experienced code users to prepare for the mandatory Ministry Building Code Qualification Examinations. Provincial Legislative Recommendation #8 The municipal council of the City of St. Catharines shall ensure a policy is developed to delineate the perspective roles of the Building and Fire Inspectors for the plans review process and inspection. 6.9 Pre-Incident Planning 59 Numerous Ontario Coroners Jury s have made recommendations to fire services pertaining to Pre-incident Planning. Pre-incident planning is the process of preparing an advance plan for emergency operations at a given occupancy if a fire occurs. It increases the effectiveness of fire suppression operations at a fire scene, and enhances public and firefighter safety and the protection of property. 8 Involving fire prevention staff in the pre-incident planning process benefits emergency operations and provides suppression crews with accurate fire safety inspection information. 60 The review team determined there were no pre-incident plans in existence for any of St. Catharines buildings. 61 There is no Pre-Incident Planning Policy or Guideline and there is no collaboration or training provided between Suppression and Fire Prevention Divisions. Recommendation #8 The municipal council of the City of St. Catharines should ensure the development and implementation of a Pre-Incident Planning Operating Guideline that includes both Suppression and Fire Prevention Divisions and all staff be trained accordingly Fire Investigations 62 Fire investigations can be proactive in assisting with determining, developing and validating current fire protection services. Information collected when conducting 8 Clinton H. Smoke Company Officer. Third Edition. p. 314; The Firefighter Handbook: Essentials of Firefighting and Emergency Response. Second Edition p. 950.; Ontario Fire Services Standards: Firefighter. Section 11. p

130 fire investigations can be a valuable tool in developing an effective public education program for a municipality as it relates specifically to a community s needs and circumstances. 63 Communication between the divisions is required to ensure continuity of the investigative process to ensure accurate fire cause determination. 64 The Memorandum of Understanding (MOU) between the Niagara Regional Police Services, OFMEM and the fire services for the Region of Niagara (including St. Catharines Fire Department) defines the role of each agency in relation to fires/explosions investigation occurring in the municipality. 65 The review team examined St. Catharines Fire Department procedure for conducting fire investigations and utilizing this information for prioritizing fire prevention activities and the development of public education programs. The following issues were identified: fire prevention staff are currently utilized to perform fire investigation activities when requested by suppression. There are no formal policies or existing operating guidelines pertaining to calling in fire prevention staff or conducting fire investigations; there is a lack of communication between Fire Prevention and Suppression Divisions. Communication is required to ensure continuity of the investigative process to ensure accurate cause determination; fire investigations completed by suppression are entered as a complaint in the Amanda system however, many fire prevention staff cannot access this data; no consistent process is used for transferring information between suppression and fire prevention regarding fire investigations; emergency response and fire investigation data are not considered when prioritizing inspections or developing public education activities/programs; no formal policy or operating guideline exists pertaining to the requirements and procedures for post-fire fire safety inspections of a building/occupancy to verify compliance with relevant codes and standards; and staff identified that they were not familiar with the requirements of Fire Marshal s Directive : Office of the Fire Marshal and Emergency Management Notification of Fires and Explosions. This directive requires all Assistants to the Fire Marshal to notify the Office of the Fire Marshal and Emergency Management of all incidents that meet specific criteria in the province. province. Municipal Recommendation #4 The municipal council of the City of St. Catharines shall ensure the Memorandum of Understanding for Fire/Explosion Investigations is reviewed, amended and updated as required. 16

131 Recommendation #9 The municipal council of the City of St. Catharines should ensure operational guidelines pertaining to fire investigation activities and the transferring of information between the Divisions are developed, implemented and training of fire department staff provided accordingly. Recommendation #10 The municipal council of the City of St. Catharines should ensure fire prevention staff have access to response and fire investigation data to prioritize fire prevention activities and develop relevant public education programs in the community. Recommendation #11 The municipal council of the City of St. Catharines should ensure the development of a policy outlining the requirements and activities for post-fire fire safety inspections of a building or occupancy to verify compliance with the Fire Code. Provincial Legislative Recommendation #9 The municipal council of the City of St. Catharines shall ensure that fire department staff are aware of directives issued by the Fire Marshal including the criteria stated in the Fire Marshal s Directive : Office of the Fire Marshal and Emergency Management Notification of Fires and Explosions Training 66 Training of fire department personnel is required under the Occupational Health and Safety Act (OHSA) as prescribed by the Ontario Ministry of Labour. The Ministry of Labour, in collaboration with fire service stakeholders, develops Ontario Fire Service Section 21 Committee Guidance Notes. 67 The Fire Prevention Division training was reviewed but the team did not assess the content of the training program however, it did include the documentation of training activities. 68 Training records provided indicated the following: 8 staff have completed the Fire Prevention Officer Diploma Program at the Ontario Fire College 6 staff have completed the Public Fire and Life Safety Educator Certification 4 staff have completed the Fire Inspector Level II Plans Review Gap course 69 There is no formal annual training program for the Fire Prevention Division and therefore could not be assessed by the review team. 70 St Catharine s Training Division is responsible for providing corporate training to the Fire Prevention Division and maintains those records. A new Records Management System for training records is being developed with the capabilities of tracking staff training. Any training conducted or received outside the purview of this scope is maintained by the Fire Prevention Officer. 17

132 71 No indoctrination/formalized training or professionalization program/policy exists that outlines the development expectations for fire prevention staff. 72 Annual written tests are currently administered by the Chief Fire Prevention Officer however; this process is not supported by the Collective Agreement and there is no formal policy to support the measurement expectations of staff. 73 Training on the current Record Management System (Amanda) was identified as an issue by the Fire Prevention Division. Recommendation #12 The municipal council of the City of St. Catharines should ensure the development of a formal indoctrination process and training program to ensure all fire prevention staff is trained as required to perform their municipal and legislative responsibilities and duties. Recommendation #13 The municipal council of the City of St. Catharines should ensure a fire department annual training program and policy is developed for each core service identified in the Establishing and Regulating By-law. Recommendation #14 The municipal council of the City of St. Catharines should ensure a training records management system is developed, implemented and administered by the Training Division. This will ensure consistent individual training assessments and reports are accurate and stored in a secure central location for fire service staff. Recommendation #15 The municipal council of the City of St. Catharines should ensure a professionalization development process and policy for fire prevention staff is developed and implemented. 7.0 Office of the Fire Marshal and Emergency Management Conclusion Municipal Fire Protection and Prevention Responsibilities 74 The purpose of this review is to assist the City of St. Catharines in meeting its legislative responsibilities as per Part II of the Fire Protection and Prevention Act, 1997 R.S.O. 1997, Chapter 4. The review has identified a number of legislative requirements and recommendations to assist the municipality in meeting its responsibilities in accordance with the requirements of fire protection services (fire prevention components), as stated in Clauses 2.(1)(a) and 2.(1)(b) of the legislation. 75 The Office of the Fire Marshal and Emergency Management will continue to monitor fire protection services in this community and will provide further advice and assistance in cooperation with municipal council and their fire department. 18

133 Recommendation #16 The municipal council of the City of St. Catharines shall develop a timeline and tracking system for the implementation and course of action for each recommendation and legislative requirement contained within this report in collaboration with the Office of the Fire Marshal and Emergency Management. 19

134 7.1 Legislative Requirements and Recommendations Provincial Legislative Recommendation #1 The municipal council of the City of St. Catharines shall complete a comprehensive fire risk assessment in the municipality to identify high and extreme risk buildings/occupancies and develop fire prevention programs and activities based on those identified risks. Provincial Legislative Recommendation #2 The municipal council of the City of St. Catharines shall ensure the development and implementation of a smoke alarm program, including home fire escape planning. Provincial Legislative Recommendation #3 The municipal council of the City of St. Catharines shall develop and implement a formal inspection policy to conduct inspections based on a complaint or request. Provincial Legislative Recommendation #4 The municipal council of the City of St. Catharines shall develop and implement a formal policy for vulnerable occupancies in compliance with the legislative requirements. Provincial Legislative Recommendation #5 The municipal council of the City of St. Catharines shall ensure that all Fire Prevention property files are reviewed in consultation with the building department for accuracy, consistency, correct building classification and to affirm that all outstanding fire code contraventions or fire hazards are remedied and the building is compliant with the Ontario Fire Code. Provincial Legislative Recommendation #6 The municipal council of the City of St. Catharines should ensure that Fire Prevention staff apply the enforcement options consistently pursuant to FPPA and Provincial Offences Act. Provincial Legislative Recommendation #7 The municipal council of the City of St. Catharines shall ensure that a thorough review of property files is conducted to ascertain all buildings that require a fire safety plan are present and approved by the Chief Fire Official or their designate as outlined in the FPPA and Ontario Fire Code. Provincial Legislative Recommendation #8 The municipal council of the City of St. Catharines shall ensure a policy is developed to delineate the perspective roles of the Building and Fire Inspectors for the plans review process and inspection. 20

135 Provincial Legislative Recommendation #9 The municipal council of the City of St. Catharines shall ensure that fire department staff are aware of directives issued by the Fire Marshal including the criteria stated in the Fire Marshal s Directive : Office of the Fire Marshal and Emergency Management Notification of Fires and Explosions. Municipal Recommendation #1 The municipal council of the City of St. Catharines shall develop and implement an updated Establishing and Regulating By-law consistent with the legislative requirements of the Municipal Act and FPPA. Municipal Recommendation #2 The municipal council of the City of St. Catharines shall ensure that existing by-laws that have established legislative requirements or appointments are reviewed, amended or repealed as required. Municipal Recommendation #3 The municipal council of the City of St. Catharines shall conduct an audit of Fire Prevention records to confirm compliance with By-law (No ) Preservation, Retention and Destruction of Records. Municipal Recommendation #4 The municipal council of the City of St. Catharines shall ensure the Memorandum of Understanding for Fire/Explosion Investigations is reviewed, amended and updated as required. Recommendation #1 The municipal council of the City of St. Catharines should ensure that fire-related by-laws be developed, implemented and enforced based on the municipalities requirements and be reviewed regularly to ensure currency, accuracy, relevancy, and effectiveness when delivering fire protection services. Recommendation #2 The municipal council of the City of St. Catharines should ensure that fire service policies and operating guidelines are developed or updated to reflect the delivery of approved core services in the Establishing and Regulating By-law. The fire service staff responsible for fire prevention activities receives training prior to the implementation of fire prevention policies and operating guidelines. Recommendation #3 The municipal council of the City of St. Catharines should ensure that fire prevention staff be provided with the necessary devices to perform their duties in an efficient and consistent manner, with priority being given to upgrading the Amanda system. 21

136 Recommendation #4 The municipal council of the City of St. Catharines should designate appropriate resources to ensure the Fire Prevention Division operates in a professional, consistent and efficient manner to meet the increasing municipal requirements of the community. Recommendation #5 The municipal council of the City of St. Catharines should ensure that there is a policy describing how public fire safety education activities are developed, delivered and documented for the identified risks in the municipality. Recommendation #6 The municipal council of the City of St. Catharines should ensure a routine inspection policy be developed and implemented based on a comprehensive risk assessment. Recommendation #7 The municipal council of the City of St. Catharines should ensure Fire Prevention inspection activities are risk based. Recommendation #8 The municipal council of the City of St. Catharines should ensure the development and implementation of a Pre-Incident Planning Operating Guideline that includes both Suppression and Fire Prevention Divisions and all staff be trained accordingly. Recommendation #9 The municipal council of the City of St. Catharines should ensure operational guidelines pertaining to fire investigation activities and the transferring of information between the Divisions are developed, implemented and training of fire department staff provided accordingly. Recommendation #10 The municipal council of the City of St. Catharines should ensure fire prevention staff have access to response and fire investigation data to prioritize fire prevention activities and develop relevant public education programs in the community. Recommendation #11 The municipal council of the City of St. Catharines should ensure the development of a policy outlining the requirements and activities for post-fire fire safety inspections of a building or occupancy to verify compliance with the Fire Code. Recommendation #12 The municipal council of the City of St. Catharines should ensure the development of a formal indoctrination process and training program to ensure all fire prevention staff is trained as required to perform their municipal and legislative responsibilities and duties. 22

137 Recommendation #13 The municipal council of the City of St. Catharines should ensure a fire department annual training program and policy is developed for each core service identified in the Establishing and Regulating Bylaw. Recommendation #14 The municipal council of the City of St. Catharines should ensure a training records management system is developed, implemented and administered by the Training Division. This will ensure consistent individual training assessments and reports are accurate and stored in a secure central location for fire service staff. Recommendation #15 The municipal council of the City of St. Catharines should ensure a professionalization development process and policy for fire prevention staff is developed and implemented. Recommendation #16 The municipal council of the City of St. Catharines shall develop a timeline and tracking system for the implementation and course of action for each recommendation and legislative requirement contained within this report in collaboration with the Office of the Fire Marshal and Emergency Management. Signed in Sudbury, ON Arthur Booth Operations Manager Office of the Fire Marshal and Emergency Management and Emergency Management and Emergency Management 23

138 8.0 Appendices Appendix 1 Ministry of Community Safety and Correctional Services Office of the Fire Marshal Suite Hwy 69 South Sudbury ON P3G 0A7 Tel: Fax: (705) Ministère de la Sécurité communautaire et des Services correctionnels Bureau du commissaire des incendies Suite , route 69 sud Sudbury ON P3G 0A7 Tel: Téléc. : (705) File Reference/Référence: May 29, 2014 Mayor Brian McMullan and Members of Council City of St. Catharines P.O. Box 3012, 50 Church Street St. Catharines, ON L2R 7C2 Re: Notification of OFMEM review of fire protection services in the City of St. Catharines pursuant to Clause 9.(1)(a) of the Fire Protection and Prevention Act, 1997 Dear Mayor Brian McMullan and Members of Council: Officials from the Office of the Fire Marshal and Emergency Management (OFMEM) have participated in ongoing discussions with municipal officials from the City of St. Catharines pertaining to the delivery of fire protection services and emergency management. It was agreed by both parties on May 21, 2014, that the City of St. Catharines would benefit from a review. During this conversation, we advised that we would conduct a review of fire protection services pursuant to our authority as per the Fire Protection and Prevention Act, 1997(FPPA), Part III, Clause 9. (1)(a), specifically to review (items such as: fire prevention, public education, inspections, enforcement, and fire investigations) activities for the City of St. Catharines. Upon completion, the review will provide the City of St. Catharines with recommendations to assist in improving the effectiveness and efficiency of the delivery of fire protection services to its residents and in meeting its responsibilities under the FPPA and other supporting legislation. 24

139 -2- It will be the responsibility of the City of St. Catharines to provide all requested documentation pertaining to fire protection services and emergency management prior to commencing the on-site visit. During the on-site visit the review team must be provided access to all required documentation. The scope of the review will address: 1. Establishing and Regulating By-law (determine the level of fire prevention services in the City of St. Catharines.) 2. Risk Assessment (utilizing the fire risk sub-model and the integrated risk model) to identify all high and extreme risks in the municipality. 3. Fire Inspection practices and protocols (training, frequency, enforcement option, utilization of non-traditional staff such as fire suppression). 4. Public Education programs development and utilization. 5. Fire investigation to assist in improving fire service delivery gaps. 6. Evaluation of current pre-plans in place and identify gaps that would benefit from pre-planning; developing pre-plans for all high and extreme risks (enhancing the health and safety for staff and residents/occupants.) 7. Interaction between fire services and various city services (improving response to various issues.) 8. Emergency Management Planning. Under the direction of the Regulating Modernization Act, during the course of the review, should the OFMEM become aware of other issues which may impact on another ministry or regulatory authority, the OFMEM will notify both the municipality and that ministry or authority. Further, the OFMEM as part of its responsibilities will address any critical fire protection delivery issues that may be identified during the review process. The OFMEM will provide any assistance necessary to resolve any critical issues that are identified. We are anticipating a start date of July 8, We will provide further correspondence to assist you in preparing for the review. The OFMEM will provide a report to council with recommendations and follow up with advice and assistance until all recommendations are completed. Your ongoing cooperation is anticipated so that the report will be completed in a timely manner. 25

140 -3- The OFMEM is available throughout the review to respond to any questions or address any concerns. I will be the lead on this review and I may be reached by e- mail at Art.Booth@ontario.ca or by telephone at Sincerely, Art Booth Operations Manager Field and Advisory Services c. Dan Carnegie, Chief Administrative Officer Bonnie Nistico-Dunk, City Clerk Mark Mehlenbacher, Fire Chief Jim Jessop, Director Barney Owens, Director Al Suleman, Director Pierre Yelle, A/Assistant Deputy Fire Marshal Jeff Dick, A/Executive Officer Tony Pacheco, Executive Assistant Jonathan Stone, Executive Assistant 26

141 Appendix 2 27

142 APPENDIX C ST. CATHARINES FIRE AND EMERGENCY MANAGEMENT SERVICES Fire Response Modelling Assessment Final Report August

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144 August 12 th, 2016 St. Catharines Fire and Emergency Management Services 64 Geneva Street St. Catharines, ON L2R 4M7 Attention: Mr. Dave Wood Fire Chief / Director of Fire and Emergency Management Services City of St. Catharines Fire Response Modelling Assessment Dear Chief Wood: We are pleased to provide the following final report summarizing our methodology, findings and conclusions for the GIS (Geographic Information Systems)-based fire response and station location modelling assessment to support the internal development of a fire master plan for the City of St. Catharines. This report presents the results from completing the scope of work outlined in our Scope of Work and Budget letter dated April 4 th, We trust the final report results and findings meet your needs to assist in the development of the Fire Master Plan. If you have any questions or require any additional information, please contact me. Sincerely, DILLON CONSULTING LIMITED Suzanne Charbonneau, P. Eng., Project Manager / Associate SLC:tlm Enclosure(s) or Attachment(s) Our file:

145

146 i Table of Contents 1.0 Introduction and Background Performance Measures Fire Response Modelling Assessment Performance Measures Applied Historic Call Locations Response Time Components Historic Response Times Fire Response and Station Location Model Modelled Service Areas Model Results Existing Conditions Future Status-quo Scenario Five Station Model, Close Station 2 Scenario Five Station Model, Close Station 2 and Relocate Station 1 Scenario Five Station Model, Close Station 2 and Relocate Station 6 Scenario Seven Station Model, Add Station 7 Scenario Seven Station Model, Add Station 7 and Relocate Station 2 and Station 6 Scenario Six Station Model, Additional Staffed Aerial at Station Summary of Results 46 St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

147 ii Figures Figure 1: Initial Response Fire Scene Responsibilities... 3 Figure 2: Depth of Response Fire Scene Responsibilities... 4 Figure 3: Station Locations and Historic Calls... 7 Figure 4: Call Density... 8 Figure 5: Existing (and Future) Service Area Figure 6: Existing Initial Response, Historic Dispatch and Turnout Times Figure 7: Existing Initial Response, NFPA Dispatch and Turnout Times Figure 8: Existing Depth of Response Figure 9: Five Station Model Close Station 2 Scenario, Initial Response Figure 10: Five Station Model Close Station 2 Scenario, Depth of Response (Minimum Staff 27) Figure 11: Five Station Model Close Station 2 Scenario, Depth of Response (Minimum Staff 23) Figure 12: Five Station Model Close Station 2 and Relocate Station 1, Initial Response Figure 13: Five Station Model Close Station 2 and Relocate Station 1, Depth of Response Figure 14: Five Station Model Close Station 2 and Relocate Station 6, Initial Response Figure 15: Five Station Model Close Station 2 and Relocate Station 6, Depth of Response Figure 16: Seven Station Model Add Station 7, Initial Response Figure 17: Seven Station Model Add Station 7, Depth of Response Figure 18: Seven Station Model Add Station 7 and Relocate Station 2 and Station 6, Initial Response Figure 19: Seven Station Model Add Station 7 and Relocate Station 2 and Station 6, Depth of Response Figure 20: Six Station Model Additional Staffed Aerial at Station 1, Depth of Response Tables Table 1: St. Catharines Fire Stations and Staffing... 1 Table 2: Dispatch and Turnout Times ( )... 9 Table 3: Calibrated Road Network Speeds Table 4: Summary of Initial Response Coverage Results Table 5: Summary of Depth of Response Coverage Results Table 6: Summary of Initial Response Coverage St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

148 iii Table 7: Summary of Depth of Response Coverage Table 8: Summary of Depth of Response Coverage Table 9: Summary of Initial Response Coverage Table 10: Summary of Depth of Response Coverage Table 11: Summary of Initial Response Coverage Table 12: Summary of Depth of Response Coverage Table 13: Summary of Initial Response Coverage Table 14: Summary of Depth of Response Coverage Table 15: Summary of Initial Response Coverage Table 16: Summary of Depth of Response Coverage Table 17: Summary of Depth of Response Coverage Results Table 18: Summary of Initial Response Coverage Table 19: Summary of Depth of Response Coverage St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

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150 1 1.0 Introduction and Background The City of St. Catharines (City or St. Catharines) is located within the Regional Municipality of Niagara (Niagara Region) and covers an area of approximately 96 square kilometres. With over 131,000 1 residents, the City is the largest municipality (by population) within Niagara Region. The St. Catharines Fire and Emergency Management Services (SCFEMS) provides fire suppression, public education, emergency response and technical rescue services for the City of St. Catharines. The SCFEMS is a full-time department operating from six existing stations. The fire and emergency management services headquarters (Station 1) is located at 64 Geneva Street within the downtown core of St. Catharines. The location and staffing of all fire stations within the City is shown in Table 1. Table 1: St. Catharines Fire Stations and Staffing Station Number Location Staffing Station 1 (Headquarters) 64 Geneva Street Pumper 4 Firefighters Rescue 2 Firefighters Platoon Chief Station Linwell Road Pumper 4 Firefighters Station Pelham Road Pumper 4 Firefighters Station Merritt Street Pumper/Aerial 4 Firefighters Station Martindale Road Pumper/Aerial 4 Firefighters Station Scott Street Pumper/Aerial 4 Firefighters The City s natural geography and road network result in several physical barriers, such as the Queen Elizabeth Way (QEW), Highway 406, and the Twelve Mile Creek which can cause fire response challenges. The two major highways traveling through the City are the QEW which runs east-west and Highway 406 travels which runs north-south, both have approximately eleven arterial roadway crossings. The limited number of crossings cause challenges to the initial response coverage. The Twelve Mile Creek bisects the City, flowing from the south municipal City boundary to Lake Ontario north of the City. There are minimal bridge crossings of the creek, again challenging initial response coverage. The City of St. Catharines is currently preparing an internal Fire Master Plan, reviewing all aspects of the fire and emergency services department. In order to complete the Fire Master Plan, the St. Catharines Fire and Emergency Management Services commissioned Dillon 1 Statistics Canada, Census Profiles, 2011 Census St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

151 2 Consulting Limited (Dillon) to develop a fire station location model and assess fire response scenarios. This report describes the development of the analytic model and the performance measures applied and summarizes the results of the six fire station locations, staffing levels and station configuration alternatives that were tested. 1.1 Performance Measures Initial Arriving Company Initial Response Initial 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. An initial 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 Commander; 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 some limited fire suppression 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 initial response. Fire scene responsibilities of an initial response are highlighted in Figure 1. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

152 3 Figure 1: Initial Response Fire Scene Responsibilities (Office of the Fire Marshal, Ontario, Public Fire Safety Guideline , December, (Rescinded November 10, 2010)) The NFPA 1710 standard identifies an initial response deployment of four firefighters to effectively, efficiently and safely conduct initial fire suppression operations. Initial Full Alarm Assignment Depth of Response In comparison to the initial 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. 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 2. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

153 4 Figure 2: Depth of Response Fire Scene Responsibilities (Shown including an aerial device 15 firefighters) Modified from the Office of the Fire Marshal, Ontario, Public Fire Safety Guideline , December, (Rescinded November 10, 2010). The NFPA 1710 standard identifies a depth of response deployment of 14 firefighters (and accounts for one additional firefighter to bring an aerial on-scene) to effectively, efficiently and safely conduct initial fire suppression operations in a fire risk scenario representing a singlefamily detached dwelling. St. Catharines Initial Response Performance Measure The City of St. Catharines currently uses its own Council-approved response performance measure. The current measure requires an initial response (first arriving front-line staffed apparatus) within five minutes of total response time for 90% of emergency incidents. Total response time includes the duration from the time the department takes responsibility of the call (i.e. after call handling) until the responding apparatus arrives on-scene. This includes the three main elements of response: 1. Dispatch time: Time to receive and dispatch the call (NFPA 1710 target is 60 seconds); 2. Turnout time: Time required for firefighters to react and prepare to respond. Crews dressed and in the response vehicle, signed on the air and responding to the incident.(nfpa 1710 target is 80 seconds for fire and rescue incidents and 60 seconds for medical incidents); and 3. Travel time: Actual travel time from the fire station to the incident (NFPA 1710 target is 240 seconds (four minutes) for initial response). St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment August

154 5 2.0 Fire Response Modelling Assessment This fire response modelling assessment focused on the development of a GIS-based fire response and station location model. The model was used to assess the fire response coverage under time-based performance measures, as well to assess depth of response staffing coverage within the City of St. Catharines. The assessment modelled the following scenarios: Status-quo existing six fire stations under existing conditions (with historic dispatch and turnout times and with NFPA target dispatch and turnout times); Future Status-quo existing six fire stations under future growth conditions; Close Station 2 proposed five station model which assumes the closure of Station 2 and measures response times of remaining stations under future growth conditions (depth of response measured with a minimum staffing of 27 and 23); Close Station 2 and Relocate Station 1 proposed five station model which assumes the closure of Station 2 and relocation of Station 1 (to near the intersection of Lake Street and Carlton Street) and measures response times of remaining stations under future growth conditions; Close Station 2 and Relocate Station 6 proposed five station model which assumes the closure of Station 2 and relocation of Station 6 (to near the intersection of Linwell Road and Devon Road) and measures response times of remaining stations under future growth conditions; Seven Stations selecting a preferred location for a seventh station (near the intersection of Welland Avenue and Neilson Avenue) to meet response times under future growth conditions; Seven Stations and Relocate Station 2 and Station 6 selecting a preferred location for a seventh station (near the and relocating Linwell Road and Niagara Street) and relocate Station 2 (near the intersection of Lake Street and Scott Street) and Station 6 (near the intersection of Grantham Avenue and Facer Street) to meet response times under future growth conditions; and Six Stations Add an Aerial to Station 1 adding a crew of four staffing an aerial at Station 1 under existing station location conditions. 2.1 Performance Measures Applied Defining performance measures to apply to a fire response assessment is important to analyze how well positioned a fire service is to respond to its community and to identify where improvements or efficiencies can be made. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

155 6 This study assessed the St. Catharines Fire and Emergency Management Services using the following performance measures: Initial Response: As per the St. Catharines Council approved performance measure, the initial response modelling measured the first arriving staffed apparatus measured at five minutes of total response time (90% of incidents target). The model also measured initial response performance at six minutes, six minutes and 20 seconds, seven minutes, and eight minutes of total response time (sum of dispatch, turnout, and travel time). Six minutes and 20 seconds aligns with the NFPA standards for all the components which comprise total response time (also targets 90% of incidents). This is the performance measure typically applied for assessing station locations and is the focus of the station location discussion in the sections below. Depth of Response: As per NFPA 1710, depth of response was measured as 14 firefighters arriving on-scene within eight minutes of travel time (targets 90% of incidents). 2.2 Historic Call Locations SCFEMS maintains records of their historic call locations and response times. The historic call locations and existing station locations are shown in Figure 3. The location trends for historic fire calls can be seen in call density map shown as Figure 4. The areas of blue have a very low call density; the areas shown in yellow begin to identify areas of multiple calls. The areas shown in red have a high density of historic fire calls. From the figure it is evident that the majority of calls within the urban boundary of the municipality. There is a large dense cluster of fire calls within the downtown core. There are several smaller dense clusters of fire calls, Louth Street and Rykert Street, Fourth Avenue and Louth Street, Scott Street and Vine Street, Carlton Street and Lake Street, and between Welland Street, Carlton Street, Vine Street, and Welland Canals Parkway. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

156 H H H H H H 4th Avenue Queen Elizabeth Way Highway 406 Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Existing Station Locations and Historic Call Locations Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Basemap.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary Urban Boundary H Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody

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158 H H H H H H 4th Avenue Queen Elizabeth Way Highway 406 Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Call Location Density Figure km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Call Density.mxd PROJECT: STATUS: DRAFT DATE: 8/10/2016 Municipal Boundary H Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Call Location Density High Density Low Density Urban Boundary

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160 9 2.3 Response Time Components An assessment of the historic fire call data establishes the travel time components of response time to inform the fire station location modelling. An assessment of historic fire call dispatch and turnout times was carried out. The assessment analyzed actual fire incidents for the years 2010 to The results of the call data analysis, summarizing the average and 90 th percentile times is shown below in Table 2. Table 2: Dispatch and Turnout Times ( ) Year Data Item Average Time 90th Percentile Time 2010 Fire Dispatch 0:00:25 0:00: Fire Dispatch 0:00:21 0:00: Fire Dispatch 0:00:25 0:00: Fire Dispatch 0:00:26 0:00: Fire Dispatch 0:00:26 0:00: Fire Dispatch 0:00:27 0:00:51 Consolidated Fire Dispatch 0:00:25 0:00: Turnout 0:02:03 0:02: Turnout 0:02:05 0:02: Turnout 0:02:09 0:02: Turnout 0:02:09 0:02: Turnout 0:02:20 0:03: Turnout 0:02:24 0:03:11 Consolidated Turnout 0:02:11 0:02:57 SCFEMS fire dispatch has historically taken an average time of 25 seconds and a 90 th percentile time of 44 seconds. St. Catharines Fire and Emergency Management Services turnout time during the past six years has been on average two minutes and eleven seconds and the 90 th percentile has been two minutes and 57 seconds. These historic dispatch and turnout times were assessed within the context of the St. Catharines Council-adopted initial response performance measure of a five minute total response time (from the time that has dispatched the call until the time the fire and emergency management services arrives on-scene). Assuming a fire dispatch time of 44 seconds and a turnout time of two minutes and 57 seconds, only one minute and 19 seconds of travel time would remain to meet the five minute total response time performance measure. The historic performance, measured against the St. Catharines five minute total response time target, is modelled in the section below to simulate existing conditions for initial response coverage. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

161 10 The modelling assessment focuses on response results and the potential coverage which could be achieved assuming SCFEMS meets the NFPA 1710 dispatch and turnout times. The objective set by NFPA 1710, for career departments, is to meet a dispatch time of 60 seconds and a turnout time of 80 seconds or less for fire and other rescue calls. With these time components applied two minutes and 40 seconds of travel time would be available to meet the five minute initial response performance measure. The NFPA 1710 initial response performance measure for the first arriving apparatus staffed with four firefighters reflects a total response time of six minutes and 20 seconds, which provides for a travel time of four minutes. This is the standard that typically applies to station location assessments, and was carried through our analysis of the station configuration scenarios in the section below. 2.4 Historic Response Times Our assessment of the SCFEMS historic call data ( ) indicates that the initial arriving vehicle, staffed with four firefighters as per minimum staffing requirements, historically arrived on-scene within five minutes or less (St. Catharines Performance Measure) to 45% of incidents, and arrived on-scene within six minutes and 20 seconds (NFPA 1710 Initial Response Performance Measure) to 76% of incidents. The target for both of these performance measures is 90% of calls. The department would significantly improve actual total response times if the turnout times for incidents were decreased. SCFEMS should make this a focus for improving response coverage. 2.5 Fire Response and Station Location Model This section provides a brief outline of the fire response modelling methodology. This will provide insight into the modelling procedures used to assess existing and proposed future response coverage and to assess the potential station location options. Modelling analysis was conducted using ESRI s Network Analyst, a GIS-based tool developed specifically for the purpose of assessing networks. Digital copies of GIS layers of the existing road networks (including road lengths, road names, address ranges, and road classification) were provided by the City of St. Catharines. This information combined with the existing station locations, was used to build the model. The GISbased model of the current City of St. Catharines road network, based on the City s GIS shapefiles, was created and calibrated using historic SCFEMS call data. This allows the model to simulate the response performance of the SCFEMS navigating this road network. The calibrated speeds from the 2007 Fire Station Location Assessment were applied as a baseline. An iterative process was then used to adjust the speeds throughout the road network and calibrate the model to accurately reflect historic travel times of initial responding units. Table 3 shows the calibrated speeds assigned to the road network and the road classifications, which have been revised slightly since St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

162 11 Table 3: Calibrated Road Network Speeds 2007 Calibrated Road Class 2007 Speeds (km/h) Road Class 2016 Calibrated Speed (km/h) Ramps and Zone Connectors 40 Ramps and Service Roads 35 Local Roads 43 Local Roads 35 Secondary Roads 51 Arterial Roads 50 Rural Roads 80 N/A - Highways (406 and QEW) 100 Highways (406 and QEW) Modelled Service Areas Service areas represent the geographic area modelled to assess response coverage. Essentially, the service areas represent the areas of the geography that requires fire and emergency services to be provided by the SCFEMS. The model scenarios were prepared to represent two time horizons: Existing conditions (2016); and Future Growth (2026). The existing service area includes all areas that are currently serviced with fire hydrants. For analysis purposes, fire-hydrant service areas were defined as all areas within 300 metres of a fire hydrant. The existing service area is shown in Figure 5. The future service area typically includes the existing coverage area plus all future development for the study horizon. According to the Niagara Regional Official Plan the majority of growth expected within the Region will occur within existing urban areas. Consultation with the City of St. Catharines Planning and Building Services staff confirms future growth will be contained within the urban boundary. As the urban boundary lies within the existing service area, with the exception of large open spaces which are not expected to develop, no future development block information was added to the existing service area. Therefore the ten-year future service area is the same as the existing service area. The modelled station location assessment measures the geographical coverage of fire and emergency response (e.g., where responding trucks can get to within the performance measure timeframe) against the City s existing service areas. The results of the coverage assessments are indicated as a percentage of area coverage and a percentage of historic calls covered within the applicable performance measure. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

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164 Queen Elizabeth Way City of St. Catharines Fire Response Modelling Assessment Lakeshore Road Main Street Lakeshore Road Service Area Existing Conditions Figure 3 Municipal Boundary Pelham Road King Street 4th Avenue Louth 5th Street Louth 7th Street St Paul Street H Louth Street Station 3 Martindale Road Station 5 H Highway 406 Ontario Street Glenridge Avenue Lake Street Geneva Street James Street Queen Elizabeth Way H Lakeport Road H Welland Avenue Station 1 Highway 406 Queenston Street H Merritt Street Station 2 Hartzel Road Station 4 Glendale Avenue Niagara Street H Station 6 Bunting Road Welland Canals Parkway Service Road Seaway Haulage Road Stewart Road Niagara Stone Road Urban Boundary Existing Service Area H Fire Station Highway Arterial Local Railways Waterbody km SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N ² St. Davids Road Taylor Road Collier Road PROJECT: STATUS: FINAL DATE: 8/10/2016 FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Existing Service Area.mxd

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166 Model Results The following summarizes each alternative station location scenario and the results that each scenario achieved Existing Conditions The existing conditions scenarios are based on staffing levels and station locations as they were in May 2016 and it represents the existing status-quo condition at the study onset. The staffing includes the existing minimum staffing complement of 27 firefighters. Initial Response Historic Dispatch and Turnout Times As discussed in the Response Time Components section above, existing conditions were modelled to reflect the historic dispatch and turnout times of the department and simulate the total response time coverage of the initial responding apparatus. The initial response coverage of four firefighters arriving on-scene within the St. Catharines performance measure of five minutes total response time is 11% of the services area and 23% of historic calls. The initial response coverage of four firefighters arriving on-scene within the NFPA 1710 six minutes and 20 seconds of response time (applying historic dispatch, historic turnout and remaining travel time component) is 48% of the service area and 70% of historic calls. Results of the initial response assessment, based on historic dispatch and turnout times, are shown in Figure 6 and summarized in Table 4. As shown in Figure 6, there are four significant areas within the results that highlight response challenges (i.e. greater than six minutes and 20 seconds of response time. These areas are shown in yellow, orange and red on the figure: 1. east of Twelve Mile Creek to Lake Street between Carlton Street and Scott Street; 2. between Lake Ontario and Lakeshore Road / Parnell Road; 3. east of Grantham Avenue to the municipal City boundary from Carlton Street to Queenston Street; and 4. between Highway 406 and Glenridge Avenue (between Station 3 and Station 4. Existing Conditions NFPA Dispatch and Turnout Times The existing conditions initial response coverage was also assessed using a response time with the dispatch and turnout times that meet the NFPA performance measures (e.g. 60 seconds and 80 seconds respectively). The initial response coverage of four firefighters arriving on-scene within the St. Catharines performance measure of five minutes total response time (using NFPA performance measures for dispatch and turnout leaves 160 seconds for travel time) is 50% of the service area and 72% of historic calls. The initial response coverage with four firefighters arriving on scene within the NFPA 1710 six minutes and 20 seconds of response time (dispatch, turnout and four minutes or 240 seconds travel time) is 81% of the service area and 94% of historic calls. The results, shown in Figure 7, highlight similar areas with challenges for response coverage, however, the areas are smaller in size. The comparison of percent of area covered and percent of calls covered is summarized in Table 4. There is a significant improvement in St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

167 14 response coverage under the improved dispatch and turnout times, which align with the NFPA 1710 standard. Under this scenario, SCFEMS is meeting and exceeding the initial response standard by covering more than 90% of incidents with four firefighters in six minutes and 20 seconds total response time. This indicates the existing six station model is serving the department well for initial response. Table 4: Summary of Initial Response Coverage Results Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% Depth of Response Depth of response assesses the number of firefighters that can arrive on-scene within an eight minute travel time, targeting 14 firefighters to meet NFPA Under existing conditions SCFEMS have a minimum staffing of 27 firefighters (including one platoon chief). The existing condition depth of response yields coverage of 89% of the service area and 98% of historic calls. This means that in 89% of the existing service area of the City, 14 firefighters are expected to arrive on-scene within eight minutes of travel time. This is the area shown in purple on the mapped depth of response assessment shown in Figure 8. The northern corner and north western corner of the service area are shown to be deficient in terms of depth of response performance. The results are also summarized in Table 5. Achieving 89% of area coverage and 98% of historic call coverage, measured against the NFPA 1710 depth of response target of 90% is a very respectable level of coverage. This indicates the existing station locations and staffing are serving the department well from a depth of response perspective. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

168 15 Table 5: Summary of Depth of Response Coverage Results Depth of Response >=8 >=12 >=14 Scenario Area % Calls % Area % Calls % Area % Calls % Existing Conditions / Future Status Quo (NFPA Turnout and Dispatch Time) - BASELINE 97% 100% 89% 98% 89% 98% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

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170 H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Initial Response Existing Conditions Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Existing Initial Response.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 11% 23% 6 minutes 37% 57% 6 minutes 20 seconds 48% 70% 7 minutes 68% 84% 8 minutes 86% 95% >8 minutes 14% 5%

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172 H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Initial Response Existing Conditions with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Existing Initial Response_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 50% 72% 6 minutes 76% 91% 6 minutes 20 seconds 81% 94% 7 minutes 89% 97% 8 minutes 96% 100% >8 minutes 4% 0%

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174 H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road City of St. Catharines Fire Response Modelling Assessment Six Station Model - Additional Staffed Aerial at Station 1, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Existing Depth of Response2.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Aerial - 4 FF Platoon Chief Station 2 Pumper - 4 FF Station 3 Pumper - 4 FF Station 4 Pumper/Aerial - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Municipal Boundary H Fire Station Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) # of Firefighters % Area Covered % Calls Covered >= 8 97% 100% >= 12 90% 98% >= 14 90% 98% Highway Arterial Local Railways

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176 Future Status-quo Scenario The Status-quo scenario evaluates the coverage that would be expected by the future (2026) horizon with the existing stations and staffing in place. The staffing includes the existing minimum staffing complement of 27 firefighters. Since the service area does not change in the future this scenario is the same as existing conditions. Therefore results for future Status-quo initial response and depth of response are the same as existing conditions. The existing conditions / future status-quo scenario is considered to be the baseline initial response coverage and depth of response coverage which will be compared to the various station and staffing scenarios. The performance measure primarily discussed for assessing the station location results will be the NFPA 1710 initial response target of four firefighters arriving on-scene within 6 minutes and 20 seconds of total response time. All modelled scenarios assume the NFPA target dispatch and turnout times are met. Improving turnout times for the department will require a dedicated effort by the SCFEMS, but will have a substantial impact on improving total response times. The results tables provided on the results maps and included within the scenario discussion sections display the results measured against the St. Catharines five minute total response performance measure, as well as the results at six minutes, seven minutes and eight minutes. The depth of response scenarios will be measured against the NFPA 1710 target of achieving 14 firefighters arriving on-scene within eight minutes of travel time. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

177 Five Station Model, Close Station 2 Scenario This scenario evaluates the coverage that is expected with a five station model following the decommissioning of Station 2. The minimum staffing of 27 firefighters were maintained, with an engine and aerial both staffed with crews of four operating from Station 4. The initial response coverage of four firefighters arriving on scene within the NFPA 1710 six minutes and 20 seconds of ideal response time (dispatch, turnout and travel) is 72% of the service area and 87% of historic calls. Results of the initial response assessment are shown in Figure 9. This scenario decreases the initial response coverage by 9% of the service area and 7% of historic calls compared to the baseline results, as shown in Table 6. The four initial response challenge areas identified under existing / future status-quo conditions remain and this scenario creates a new response challenge area within the north-west portion of the service area. Table 6: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions/ Future Status- Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model - Decommission Station 2 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% The five station model following the decommissioning of Station 2 results in a depth of response coverage of 79% of the service area and 93% of historic calls. Results of the depth of response assessment are shown in Figure 10. This scenario decreases the depth of response coverage by 10% of the service area and 5% of historic calls compared to the baseline, as summarized in Table 7. Decommissioning Station 2 decreases the depth of response coverage in the northern portion of the service area. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

178 21 Table 7: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Area % Calls % Are a % Call s % Are a % Call s % 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% Close Station 2, Minimum Staffing of 23 We also tested this scenario by reducing the minimum staffing to 23 firefighters to assess the coverage if Station 2 closed and the complement reduced by one on-duty crew. The depth of response coverage with a minimum staffing of 23 after closing Station 2 resulted in an 11% decrease of the service area and a 5% decrease of historic calls compared to the baseline. The results show a very similar coverage to closing Station 2 and relocating the crew to Station 4 with a decrease of 1% of service area and no change to the coverage of historic calls, as shown in Table 8 and Figure 11. Table 8: Summary of Depth of Response Coverage Scenario Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Area % Depth of Response >=8 >=12 >=14 Calls % Area % Calls % Area % Calls % 97% 100% 89% 98% 89% 98% Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 91% 98% 79% 93% 79% 93% Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 91% 98% 78% 93% 78% 93% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

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180 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Future Initial Response 5 Station Model - Scenario 1 with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Future Initial Response - 5 Station Model - 1_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Existing Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 44% 65% 6 minutes 67% 83% 6 minutes 20 seconds 72% 87% 7 minutes 81% 92% 8 minutes 92% 98% >8 minutes 8% 2%

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182 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Five Station Model - Close Station 2, Depth of Response (Minimum Staff 27) Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 5 Station Model - 1.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Platoon Chief Station 3 Pumper - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Station 4 Pumper - 4 FF Aerial - 4FF Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) Highway Arterial Local # of Firefighters % Area Covered % Calls Covered >= 8 91% 98% >= 12 79% 93% >= 14 79% 93% H Existing Fire Station Railways

183

184 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Five Station Model - Close Station 2, Depth of Response (Minimum Staff 23) Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 5 Station Model - 1 Remove Staff.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Platoon Chief Station 3 Pumper - 4 FF Station 4 Pumper/Aerial - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) Highway Arterial Local # of Firefighters % Area Covered % Calls Covered >= 8 91% 98% >= 12 78% 93% >= 14 78% 93% H Existing Fire Station Railways

185

186 Five Station Model, Close Station 2 and Relocate Station 1 Scenario This five station scenario assessed the response coverage following the decommissioning of Station 2 and the relocation of Station 1 to near the intersection of Lake Street and Carlton Avenue. The minimum staffing of 27 firefighters were maintained, with an engine and aerial both staffed with crews of four operating from Station 4. The initial response coverage of four firefighters arriving on scene within the NFPA 1710 six minutes and 20 seconds of total response time (applying NFPA dispatch and turnout times) is 75% of the service area and 91% of historic calls. Results of the initial response assessment are shown in Figure 12. This scenario results in an initial response coverage of 6% less service area and 3% less historic calls covered than the baseline scenario. The results are summarized in Table 9. The scenario provides better initial response coverage to the area west of Twelve Mile Creek. However, the areas east of Grantham Avenue to the municipal City boundary from Carlton Street to Queenston Street and between Highway 406 and Glenridge Avenue remain a response coverage challenge. The area between Lake Ontario and Lakeshore Road has also become larger response challenge location in this scenario. Table 9: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% 42% 60% 69% 87% 75% 91% 85% 95% 95% 100% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

187 26 The depth of response coverage results in 72% of the service area and 89% of historic calls being covered by 14 firefighters arriving on-scene in eight minutes of travel time. Results of the depth of response assessment are shown in Figure 13 and summarized in in Table 10. This scenario covers 17% less of the service area and 9% less of historic calls than the baseline scenario. This scenario decreases the depth of response coverage in the northern portion and southern portion of the service area. Table 10: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

188 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Future Initial Response 5 Station Model - Scenario 2 with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Future Initial Response - 5 Station Model - 2_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Relocated Fire Station H Existing Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 42% 60% 6 minutes 49% 87% 6 minutes 20 seconds 75% 91% 7 minutes 85% 95% 8 minutes 95% 100% >8 minutes 5% 0%

189

190 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Five Station Model - Close Station 2 and Relocate Station 1, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 5 Station Model - 2.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Platoon Chief Station 3 Pumper - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Station 4 Pumper - 4 FF Aerial - 4FF Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) Highway Arterial Local # of Firefighters % Area Covered % Calls Covered >= 8 94% 98% >= 12 78% 93% >= 14 72% 89% H Existing Fire Station Relocated Fire Station H Railways

191

192 Five Station Model, Close Station 2 and Relocate Station Scenario This five station scenario assessed the response coverage following the decommissioning of Station 2 and the relocation of Station 6 to near the intersection of Linwell Road and Devon Road. The minimum staffing of 27 firefighters were maintained, with an engine and aerial both staffed with crews of four operating from Station 4. The initial response coverage of four firefighters arriving on scene within the six minutes and 20 seconds of ideal response time (NFPA 1710 dispatch, turnout and travel times) is 78% of the service area and 89% of historic calls. Results of the initial response assessment are shown in Figure 14, and summarized in Table 11. This scenario results in initial response coverage that is 3% less of the service area and 5% less of historic calls than the baseline scenario. The scenario provides better initial response coverage to the northern portion of the City s service area. However the challenge area near the eastern City boundary becomes larger. Table 11: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% 42% 60% 69% 87% 75% 91% 85% 95% 95% 100% 44% 64% 71% 84% 78% 89% 86% 94% 95% 99% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

193 30 The depth of response coverage for this scenario yields 78% of the service area and 93% of historic calls being responded to with at least 14 firefighters within eight minutes of travel time. Results of the depth of response assessment are shown in Figure 15 and summarized in Table 12. This scenario results in a decreased depth of response coverage by 11% of the service area and 5% of historic calls, compared to the baseline scenario. The depth of response coverage decreases in the northern portion of the service area. Table 12: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Area % Calls % Area % Calls % Area % Calls % Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% 93% 98% 81% 93% 78% 93% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

194 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Future Initial Response 5 Station Model - Scenario 6 with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Future Initial Response - 5 Station Model - 6_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Existing Fire Station H Relocated Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 44% 64% 6 minutes 71% 84% 6 minutes 20 seconds 78% 89% 7 minutes 86% 94% 8 minutes 94% 99% >8 minutes 6% 1%

195

196 H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 3 Station 5 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Five Station Model - Close Station 2 and Relocate Station 6, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 5 Station Model - 6.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Platoon Chief Station 3 Pumper - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Station 4 Pumper - 4 FF Aerial - 4FF Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) Highway Arterial Local # of Firefighters % Area Covered % Calls Covered >= 8 93% 98% >= 12 81% 93% >= 14 78% 93% H Existing Fire Station Relocated Fire Stations H Railways

197

198 Seven Station Model, Add Station 7 Scenario This seven station scenario assessed the response coverage following the addition of a potential Station 7 near the intersection of Welland Avenue and Neilson Avenue. The location was selected to address an existing deficient area, with an iterative process used to identify the location with the most-improved coverage performance. This scenario adds a new crew of four firefighters to staff a front-line engine at Station 7, which increases the minimum staffing to 31. The initial response coverage of four firefighters arriving on scene within the NFPA 1710 six minutes and 20 seconds of ideal response time (dispatch, turnout and travel) is 84% of the service area and 95% of historic calls. Results of the initial response assessment are shown in Figure 16 and summarized in Table 13. This scenario shows an improvement in initial response coverage by 3% of the service area and 1% of historic calls compared with the baseline scenario. The scenario provides improved initial response coverage to the eastern portion of the City s service area. However the response challenge areas east of Twelve Mile Creek, between Lake Ontario and Lakeshore Road, and between Highway 406 and Glenridge Avenue remain. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

199 34 Table 13: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% 42% 60% 69% 87% 75% 91% 85% 95% 95% 100% 44% 64% 71% 84% 78% 89% 86% 94% 95% 99% 55% 80% 80% 93% 84% 95% 90% 97% 96% 100% The depth of response coverage for this scenario results in 89% of the service area and 98% of historic calls being reached by 14 firefighters or more in eight minutes of travel time. Results of the depth of response assessment are shown in Figure 17 and summarized in Table 14. This scenario results in an improved depth of response coverage. This scenario results in no change in coverage of the service area and no change in coverage of historic calls within eight minutes St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

200 35 of travel time compared to the baseline scenario. The northern corner and north western corner of the service area remain deficient in terms of depth of response performance. Table 14: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Area % Calls % Area % Calls % Area % Calls % Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% 93% 98% 81% 93% 78% 93% 98% 100% 92% 99% 89% 98% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

201

202 H H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 7 Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Fture Initial Response 7 Station Model - Scenario 1 with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Future Initial Response - 7 Station Model - 1_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Existing Fire Station H Additional Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 55% 80% 6 minutes 80% 93% 6 minutes 20 seconds 84% 95% 7 minutes 90% 97% 8 minutes 96% 100% >8 minutes 4% 0%

203

204 H H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 7 Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Seven Station Model - Add Station 7, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 7 Station Model - 1.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Aerial - 4 FF Platoon Chief Station 2 Pumper - 4 FF Station 3 Pumper - 4 FF Station 4 Pumper/Aerial - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Station 7 Pumper - 4 FF Stations and Staffing Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) # of Firefighters % Area Covered % Calls Covered >= 8 98% 100% >= 12 92% 99% >= 14 89% 98% Highway Arterial Local H Existing Fire Station Additional Fire Station H Railways

205

206 Seven Station Model, Add Station 7 and Relocate Station 2 and Station Scenario This seven station scenario assessed the response coverage following the addition of a seventh station (referred to as Station 7) near the intersection of Linwell Road and Niagara Street, the relocation of Station 2 near the intersection of Lake Street and Scott Street, and the relocation of Station 6 near the intersection of Grantham Avenue and Niagara Street. Again, this scenario adds a new crew of four firefighters to staff a front-line engine at Station 7, which increases the minimum staffing to 31. The initial response coverage of four firefighters arriving on scene within the NFPA 1710 six minutes and 20 seconds of ideal response time (dispatch, turnout and travel) is 87% of the service area and 96% of historic calls. Results of the initial response assessment are shown in Figure 18 and summarized in Table 15. This scenario is an improvement in initial response coverage of 6% of the service area and 2% of historic calls, compared to the baseline scenario. The scenario provides better initial response coverage to the areas east of Twelve Mile Creek and between Lake Ontario and Lakeshore Road. However, the challenge areas near the eastern portion of the City s service area and between Highway 406 and Glenridge Avenue remain. St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

207 39 Table 15: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 and Relocate Station 2 and Station 6 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% 42% 60% 69% 87% 75% 91% 85% 95% 95% 100% 44% 64% 71% 84% 78% 89% 86% 94% 95% 99% 55% 80% 80% 93% 84% 95% 90% 97% 96% 100% 57% 82% 82% 95% 87% 96% 93% 99% 98% 100% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

208 40 The depth of response coverage for this scenario results in 90% of the service area and 98% of historic calls being covered by 14 or more firefighters within eight minutes of travel time. Results of the depth of response assessment are shown in Figure 19 and summarized in Table 16 This scenario improves the depth of response coverage by 2% of the service area and 0% of historic calls compared to the baseline scenario. The depth of response coverage improves coverage in the northern portion of the City s service area however it does not resolve it completely, the northern portion of the City s service area remains deficient in terms of depth of response coverage. Table 16: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Area % Calls % Area % Calls % Area % Calls % Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 and Relocate Station 2 and Station 6 (NFPA Turnout and Dispatch Time) 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% 93% 98% 81% 93% 78% 93% 98% 100% 92% 99% 89% 98% 98% 100% 93% 99% 90% 98% St. Catharines Fire and Emergency Management Services Fire Response Modelling Assessment - August

209

210 H H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Carlton Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 7 Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Future Initial Response 7 Station Model - Scenario 4 with an Improved Turnout Time Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\Future Initial Response - 7 Station Model - 4_ImprovedTUT.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Municipal Boundary H Existing Fire Station H Relocated Fire Station H Additional Fire Station Fire Call ( ) Highway Arterial Local Railways Waterbody Initial Response Coverage 5 Minutes at Network Speed 6 Minutes at Network Speed 6 Minutes 20 Seconds at Network Speed 7 Minutes at Network Speed 8 Minutes at Network Speed >8 Minutes at Network Speed Lake Ontario Response Time % Area Covered % Calls Covered 5 minutes 57% 82% 6 minutes 82% 95% 6 minutes 20 seconds 87% 96% 7 minutes 93% 99% 8 minutes 98% 100% >8 minutes 2% 0%

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212 H H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road Station 7 Station 3 Station 5 Station 2 Station 6 Station 1 Station 4 City of St. Catharines Fire Response Modelling Assessment Seven Station Model - Add Station 7 and Relocate Station 2 and Station 6, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Future Depth of Response - 7 Station Model - 4.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Aerial - 4 FF Platoon Chief Station 2 Pumper - 4 FF Station 3 Pumper - 4 FF Station 4 Pumper/Aerial - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Station 7 Pumper - 4 FF Stations and Staffing Municipal Boundary Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) # of Firefighters % Area Covered % Calls Covered >= 8 98% 100% >= 12 93% 99% >= 14 90% 98% Highway Arterial Local H Existing Fire Station Additional Fire Station H Railways Relocated Fire Station H

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214 Six Station Model, Additional Staffed Aerial at Station 1 The six station model, tested as the existing and future status-quo, provides relatively good initial response coverage. This scenario tested the potential improvement to the depth of response coverage only, if an aerial (staffed with a crew of four firefighters) was added to Station 1. This would result in a minimum staffing of 31. The addition of an aerial at Station 1 yields a depth of response coverage of 90% of the service area and 98% of historic calls. Results of the depth of response assessment are shown in Figure 20 and summarized in Table 17. The addition of an aerial to Station 1 improves the depth of response coverage by 1% of the service area and 0% of historic calls compared to the baseline scenario. The improvement is concentrated near the southern boundary. The northern corner and western area of the service area remain deficient in terms of depth of response performance. St. Catharines Fire and Emergency Management Services - August

215 44 Table 17: Summary of Depth of Response Coverage Results Depth of Response >=8 >=12 >=14 Scenario Area % Calls % Area % Calls % Area % Calls % Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 and Relocate Station 2 and Station 6 (NFPA Turnout and Dispatch Time) Existing Conditions Additional Aerial at Station 1 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% 93% 98% 81% 93% 78% 93% 98% 100% 92% 99% 89% 98% 98% 100% 93% 99% 90% 98% 97% 100% 90% 98% 90% 98% St. Catharines Fire and Emergency Management Services - August

216 H H H H H H Queen Elizabeth Way Highway 406 4th Avenue Lakeshore Road Bunting Road Pelham Road Stewart Road Niagara Street Geneva Street Welland Canals Parkway St Paul Street Louth 7th Street Welland Avenue Martindale Road Taylor Road Glenridge Avenue Lake Street King Street York Road Louth 5th Street Niagara Stone Road Louth Street Queenston Street Main Street Highway 405 St. Davids Road Merritt Street Lakeport Road Glendale Avenue Hartzel Road Ontario Street Collier Road Service Road James Street Seaway Haulage Road Highway 406 Queen Elizabeth Way Lakeshore Road City of St. Catharines Fire Response Modelling Assessment Six Station Model - Additional Staffed Aerial at Station 1, Depth of Response Figure # km ² SCALE 1:50,000 MAP DRAWING INFORMATION: DATA PROVIDED BY CITY OF ST. CATHARINES AND MNRF MAP CREATED BY: SMB MAP CHECKED BY: SLC MAP PROJECTION: NAD 1983 UTM Zone 17N FILE LOCATION: I:\GIS\ St Catharines Fire Response Model\MXDs\NewModel_Existing Depth of Response2.mxd PROJECT: STATUS: FINAL DATE: 8/10/2016 Lake Ontario Station 1 Pumper - 4 FF Rescue - 2 FF Aerial - 4 FF Platoon Chief Station 2 Pumper - 4 FF Station 3 Pumper - 4 FF Station 4 Pumper/Aerial - 4 FF Station 5 Pumper/Aerial - 4 FF Station 6 Pumper/Aerial - 4 FF Stations and Staffing Municipal Boundary H Fire Station Fire Call ( ) Waterbody Depth of Response Coverage Area < 4 >= 4 >= 8 >= 12 >= 14 (Total number of staff reaching area within 8 minutes of travel time) # of Firefighters % Area Covered % Calls Covered >= 8 97% 100% >= 12 90% 98% >= 14 90% 98% Highway Arterial Local Railways

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218 Summary of Results To assist the SCFEMS with the preparation of their 2016 Fire Master Plan this Fire Response Modelling Assessment applied a GIS-based fire response and station location modelling assessment to provide preferred locations to offer the City of St. Catharines improved initial response and depth of response coverage, based on the performance measures, and options to select the level of service that meets the community s needs and circumstances. The study assessed different station configurations, locations, number of stations, and staffing. The SCFEMS initial response performance measure is comparable to, but somewhat more demanding than the industry standard (e.g. NFPA 1710). NFPA 1710 recommends four firefighters arrive on-scene within six minutes and 20 seconds of response time (dispatch, turnout, and travel) 90% of the time and that 14 firefighters arrive within eight minutes of travel time 90% of the time. The SCFEMS set their initial response performance measures at four firefighters arriving on-scene in five minutes of total response time (dispatch, turnout, and travel). The fire response and station location assessment measured the performance of SCFEMS against the NFPA 1710 s six minute and 20 second measure as well as five, six, seven and eight minutes of total response time. The depth of response assessment applied NFPA 1710 s measure to achieve 14 firefighters or more within eight minutes of travel time. Table 18 below summarizes the results for initial response coverage for each scenario. Table 19 summarizes the results for depth of response coverage for each scenario. St. Catharines Fire and Emergency Management Services - August

219 47 Table 18: Summary of Initial Response Coverage Initial Response 5 minutes 6 minutes 6 min 20 s 7 minutes 8 minutes Scenario Existing Conditions (Historic Turnout & Dispatch Time) Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) - BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 and Relocate Station 2 and Station 6 (NFPA Turnout and Dispatch Time) Area % Calls % Area % Calls % Area % Calls % Area % Calls % Area % Calls % 11% 23% 37% 57% 48% 70% 68% 84% 86% 95% 50% 72% 76% 91% 81% 94% 89% 97% 96% 100% 44% 65% 67% 83% 72% 87% 81% 92% 92% 98% 42% 60% 69% 87% 75% 91% 85% 95% 95% 100% 44% 64% 71% 84% 78% 89% 86% 94% 95% 99% 55% 80% 80% 93% 84% 95% 90% 97% 96% 100% 57% 82% 82% 95% 87% 96% 93% 99% 98% 100% St. Catharines Fire and Emergency Management Services - August

220 48 Table 19: Summary of Depth of Response Coverage Depth of Response >=8 >=12 >=14 Scenario Existing Conditions / Future Status-Quo (NFPA Turnout and Dispatch Time) BASELINE Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 27 Future 5 Station Model -Decommission Station 2 (NFPA Turnout and Dispatch Time) Minimum Staff 23 Future 5 Station Model -Decommission Station 2 and Relocate Station 1 (NFPA Turnout and Dispatch Time) Future 5 Station Model -Decommission Station 2 and Relocate Station 6 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 (NFPA Turnout and Dispatch Time) Future 7 Station Model Additional Station 7 and Relocate Station 2 and Station 6 (NFPA Turnout and Dispatch Time) Existing Conditions Additional Aerial at Station 1 Area % Calls % Area % Calls % Area % Calls % 97% 100% 89% 98% 89% 98% 91% 98% 79% 93% 79% 93% 91% 98% 78% 93% 78% 93% 94% 98% 78% 93% 72% 89% 93% 98% 81% 93% 78% 93% 98% 100% 92% 99% 89% 98% 98% 100% 93% 99% 90% 98% 97% 100% 90% 98% 90% 98% From the results and analysis, it appears that the City of St. Catharines is well-served by the existing six fire station model and the existing staffing configuration. The department has historically been meeting and exceeding the NFPA dispatch target of 60 seconds for 90% of calls. The turnout times, however, are a current challenge with a historic 90th percentile turnout time of more than two times the NFPA target of 80 seconds for fire and other rescue calls. If the department can improve turnout times to result in a combined dispatch and turnout time of 140 seconds, the initial response performance would match that of the scenarios which measure a six minute and 20 second total response time. And the initial response performance of the department could meet and exceed the call coverage target of NFPA 1710 under the six station existing station model. St. Catharines Fire and Emergency Management Services - August

221 49 The SCFEMS s depth of response coverage is excellent under existing conditions with 98% of historic incidents covered. Response performance under existing conditions surpasses the NFPA 1710 target for depth of response coverage of 90% of incidents. The amount of improvement achieved under the seven station scenarios assessed does not seem to justify the increased costs of implementing such a model. Similarly, the reduction in service resulting from the decommissioning of Station 2 and the resulting five station models is substantial. Justifying the rationale for moving to a five station model would require considerations to reduce the level of service. Any and all financial implications and assessments of this report are to be referred to the Master Fire Plan Economic Circumstances Committee for review and comment. St. Catharines Fire and Emergency Management Services - August

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223 APPENDIX D GEOGRAPHIC INFORMATION SYSTEM EMERGENCY SERVICES RESPONSE CAPABILITIES ANALYSIS FINAL REPORT International Association of Fire Fighters Sparks St. Ottawa ON K1R 7S8 ST. CATHARINES FIRE AND EMERGENCY SERVICES ST. CATHARINES, ONTARIO January 2017

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225 Dedication This Report is Dedicated to the Citizens of St. Catharines, Ontario who Deserve the Most Efficient and Effective Fire, Rescue, and Emergency Medical Services Available.

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227 Table of Contents Executive Summary... 1 Key Findings... 2 Executive Summary Conclusion... 3 Background... 5 Fire Suppression Operations... 7 Fire Growth... 8 The Incipient Phase... 8 The Free Burning Phase... 8 Figure 1: Fire Growth in a Compartment Flashover... 9 The Importance of Adequate Staffing: Concentration Table 1: Impact of Crew Size on a Low-Hazard Residential Fire The Importance of Crew Size to Overall Scene Time Table 2: The Relationship between Crew Size and Scene Time Physiological Strain on Smaller Crew Sizes Chart 1: Average Peak Heart Rate of First Engine (E1) with Different Crew Sizes by Riding Position Chart 2: Average Peak Heart Rate of First Truck (T1) with Different Crew Sizes by Riding Position The Importance of a Rapid Response Table 3: The Relationship between Fire Extension and Fire Loss OSHA s 2 In/2 Out Regulation & Ontario s Occupational Health and Safety Act Figure 2: The OSHA 2 IN/2 Out Regulation Figure 3: Emergency 2 In/2 Out Operations Initial Full Alarm Assignment Table 4: NFPA 1710, Figure 4: Initial Full Alarm Assignment Deployed Within 8 Minutes High-Rise Operations Overview of High-Rises High-Rise Firefighting Tactics i

228 Search and Rescue Fire Extinguishment Ventilation Support Table 5: Number of Firefighters for an Initial Full Alarm to a High-Rise Fire Fire Department EMS Operations Fire Department Deployment The Importance of Adequate Resources: Distribution Figure 5: Normal Distribution Model for an Initial 4-Minute Response Area Distribution vs. Concentration Mapping Analysis of the St. Catharines Fire and Emergency Services Table 6: Current Fire Station Locations and Staffing Map 1: Current Fire Station Locations and 2011 Population Density Map 2: Concentration of Emergency Response Incidents and Fire Station Locations in St. Catharines Map 3: 2-Minute & 24-Second Response & Emergency 2 In/2 Out Operations, Current Staffing and Deployment Map 4: 4-Minute Response and Emergency 2 In/2 Out Operations, Current Staffing and Deployment Map 5: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Current Staffing and Deployment Proposed Emergency Response Capabilities: Scenario Table 7: Scenario 1, Proposed Fire Station Locations and Staffing Map 6: 2-Minute, 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 7: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 8: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Map 9: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities: Scenario Table 8: Scenario 2, Proposed Fire Station Locations and Staffing ii

229 Map 10: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 11: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 12: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities: Scenario Table 9: Scenario 3 Proposed Fire Station Locations and Staffing Map 13: 2-Minute, 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 14: 4-Minute Response and Emergency 2 In/2 Out, Scenario Map 15: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities- Scenario Table 10: Scenario 4, Proposed Fire Station Locations and Staffing Map 16: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 17: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 18: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities- Scenario Table 11: Scenario 5 Proposed Fire Station Locations and Staffing Map 19: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 20: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 21: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities- Scenario Table 12: Scenario 6, Proposed Fire Station Locations and Staffing Map 22: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 23: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 24: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario iii

230 Map 25: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario Proposed Emergency Response Capabilities- Scenario Table 13: Scenario 7 Proposed Fire Station Locations and Staffing Map 26: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario Map 27: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario Map 28: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario Map 29: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario Table 14: Response Scenarios and Coverage Conclusion Appendix Performance Standards iv

231 Executive Summary The International Association of Fire Fighters (IAFF) Headquarters was engaged by the St. Catharines Professional Firefighters, IAFF Local 485, to provide information and resources to decision makers in the City of St. Catharines regarding the impact potential changes to the Department s staffing and deployment procedures would have on the St. Catharines Fire and Emergency Services (SCFES) response capabilities. SCFES maintains six fire stations, housing six pumper companies, two ladder companies, a rescue unit, a command car, and several pieces of reserve and specialty units. SCFES has a daily staffing of 27 firefighters, but possible cuts to the Department could result in daily staffing dropping to as few as 23 firefighters. The City of St. Catharines has hired Dillon Consulting to perform a fire response modelling assessment. In the Project Initiation document presented by Dillon, the consultants examined possible changes to fire station locations and staffing levels. IAFF Local 485 provided the IAFF with several possible scenarios based on Dillon s initial assessment. Some of these changes may involve the relocation of fire stations and/or the addition of a fire station. The City Property Manager confirmed that there are no viable locations on which to build new a stations, due to the lack of developable land. Currently, the Department s response time objective for initial arrival at an incident scene states that the first arriving unit should arrive on scene within 5 minutes of the incident being reported, for 90% of incidents. The 5-minute timeframe includes the time it takes to process the call and dispatch apparatus (dispatch time), the time it takes for the firefighters to don gear and board apparatus (turnout time), and the time it takes for firefighters to travel to the incident once leaving the fire station (travel time). In order to examine the Department s performance in regards to this objective, the average dispatch and turnout times needed to be defined. Dillon Consulting s analysis of SCFES call volume data between 2010 and 2015 indicated that the average dispatch time was 25 seconds and the average turnout time was 2 minutes and 11 seconds. The dispatch and turnout time combined equals 2 minutes and 36 seconds, thus resulting in an allowable travel time of 2 minutes and 24 seconds. Currently, the Department is only able to respond on 16.0% of city roads within 2 minutes and 24 seconds of travel time. SCFES should adjust its response time objectives to match the National Fire Protection Association s (NFPA ) response time standards outlined in NFPA Standard 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments, that sets a total response time (alarm handling time +turnout time + travel time) of 1

232 6 minutes and 24 seconds for fire and special operations incidents and 6 minutes and 4 seconds for an EMS incident. 12 The provision of fire protection and EMS response are essential services that governments must provide. However, in order for these services to be effective and efficient, they must be staffed and positioned appropriately to address emergencies in an equitable manner, as they occur. The current staffing design of SCFES is inconsistent with industry performance standards for response to fire and EMS incidents. Key Findings NFPA 1710 requires a minimum of 4 firefighters on all pumpers and ladders and that the first arriving apparatus be on scene within 4 minutes of travel to 90% of incidents. Currently, this requirement can only be met on 46.6% of City roads. The current lack of resources in the City significantly contributes to SCFES s inability to meet NFPA 1710 standards and any reduction in resources will further limit the Department s response capabilities. NFPA 1710 requires a minimum of 14 firefighters and 1 command officer arriving on scene to a fire occurring in a typical 2,000 foot 2 residential structure within 8 minutes. Currently, this requirement can only be met on 40.8% of City roads. The current lack of resources in the City significantly contributes to SCFES s inability to meet NFPA 1710 standards and any reduction in resources will further limit the Department s response capabilities. Staffing Ladder 4 with 4 firefighters and positioning it at Fire Station 1 (Scenario 1) would result in a 24.6% increase in the amount of roads where a minimum of 15 firefighters could assemble on scene within 8 minutes of travel to meet the requirements for response to a fire occurring in a low-hazard structure, as outlined in NFPA The closure of Fire Station 2 (Scenario 3 and part of Scenario 2) would result in a 15.6% reduction in the amount of roads covered where a minimum of 4 firefighters could arrive on scene within 4 minutes of travel. The closure of Fire Station 2 would also result in as much as a 27.5% reduction in the amount of roads covered where a minimum of 15 firefighters could assemble on scene within 8 minutes of travel to meet the requirements for response to a fire occurring in a low-hazard structure, as outlined in NFPA Scenarios 4 through 7 all include building new stations, either as relocations or as additional stations. However, the City s Property Manager has stated these could not be 1 NFPA , The fire department shall establish a performance objective of having an alarm processing time of not more than 64 seconds for at least 90% of the alarms and not more than 106 seconds for at least 95% of the alarms 2 NFPA , The fire department shall establish the following objectives (2) 80 seconds turnout time for fire and special operations response and 60 seconds turnout time for EMS response (3) 240 seconds or less travel time for the arrival of the first arriving engine company at a fire suppression incident (6) 240 seconds or less travel time for the arrival of a unit with first responder with automatic external defibrillator (AED) or higher level capability at an emergency medical incident 2

233 implemented due to the City s inability to build stations on the proposed relocation sites. The Property Manager also stated that currently there is no land available on which to build or relocate fire stations. Executive Summary Conclusion The SCFES is currently not in compliance with performance objectives contained in industry standards and the lack of resources have significantly limited the Department s emergency response capabilities. These findings are based on the following system evaluation results. Fire suppression resources are not deployed adequately for the arrival of the first arriving company within 4 minutes. Current resource deployment does not comply with travel time performance objectives included in the industry standard NFPA 1710, which directs the assembly of the full alarm assignment on-scene within 8 minutes at 90% of all incidents. The Department should add resources to areas of St. Catharines that have a high concentration of emergency incidents and/or have limited response coverage. The addition of resources will ensure that the citizens of the City of St. Catharines are provided with safe and effective fire suppression and EMS response. 3

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235 Background The International Association of Fire Fighters (IAFF) Headquarters was engaged by The St. Catharines Professional Firefighters, IAFF Local 485, to create a data-driven document for the City of St. Catharines and Fire Department administrators to assist with informed decisions regarding emergency response. St. Catharines Fire and Emergency Services is a fire department in St. Catharines, Ontario, which is located in Canada s Niagara Region, and is the largest municipality and the administrative center of the Region 3. The city covers an area of square km and in 2011 had a population of 131, SCFES provides fire suppression, rescue, fire prevention and education services, and EMS first response at the BLS level, but does not provide medical transport. In addition to all-hazard emergency responses, the Department performs other services for the City such as fire prevention and safety programs, which include fire-safety inspections. A brief risk analysis was performed on the City of St. Catharines to assess the need for emergency services. An assessment of the 2011 Canada Census 5 and the 2011 National Household Survey 6 revealed that 24.1% of the population was in a vulnerable category. This category consists of persons under the age of 5 (4.8%) and persons 65 years of age and older (19.3%), but does not include the special needs population. Additionally, 9.7% of the population was living at or below the poverty level. There were 55,420 housing units, with the majority being single family residences (58.2%) and the remainder being single-detached and row houses (13.7), multifamily apartments (27.7%) and mobile homes and other single-attached houses (0.4%). Of these structures, 37.1% were of pre-1960 construction. Typically, when there are high numbers of vulnerable citizens and older buildings constructed before many current fire codes were developed, there is an increased demand on emergency services. Given these numbers, the Department is likely to have a high and steady call volume now and in the future. The provision of fire protection is an essential service that governments must provide. The information provided in this document is designed to help decision makers understand the depth of fire department operations and how low staffing levels negatively impact responders and citizens in the City of St. Catharines

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237 Fire Suppression Operations The business of providing emergency services has always been labor intensive, and remains so today. Although new technology has improved firefighting equipment and protective gear and has led to advances in modern medicine, it is the firefighters who still perform the time-critical tasks necessary to contain and extinguish fires, rescue trapped occupants from a burning structure, and provide emergency medical and rescue services. In less than 30 seconds a small flame can burn out of control and become a major fire. During fire growth, the temperature of a fire rises to above 1,000 Fahrenheit (F). It is generally accepted in the fire service that for a medium growth rate fire, 7 flashover--the very rapid spreading of the fire due to super heating of room contents and other combustibles can occur. Assuming an immediate discovery of a fire, followed by an un-delayed call to 9-1-1, and dispatch of emergency responders, flashover is likely to occur within 8 minutes of fire ignition. However, studies conducted by the Underwriters Laboratory (UL) and the National Institute of Standards and Technology (NIST) have proved that, due to new building construction materials and room contents that act as fuel, flashover may occur in as few as four to five minutes. At the point of flashover, the odds of survival for unprotected individuals inside the affected area are virtually non-existent. The rapid response of an appropriate number of firefighters is therefore essential to initiating effective fire suppression and rescue operations that seek to minimize fire spread and maximize the odds of preserving both life and property. This section will explain fire growth and the importance of fire department response to a lowhazard structure fire. A low-hazard structure fire is defined as a fire that occurs in a typical, 2,000 square foot, single-family residential home with no basement or exposures. 7 As defined in the Handbook of the Society of Fire Protection Engineers, a fast fire grows exponentially to 1.0 MW in 150 seconds. A medium fire grows exponentially to 1 MW in 300 seconds. A slow fire grows exponentially to 1 MW in 600 seconds. A 1 MW fire can be thought-of as a typical upholstered chair burning at its peak. A large sofa might be 2 to 3 MWs. 7

238 Fire Growth The Incipient Phase The first stage of any fire is the incipient stage. In this stage a high heat source is applied to a combustible material. The heat source causes chemical changes to the material s surface which converts from a solid and begins to release combustible gases. If enough combustible gases are released the material will begin to burn freely. This process is exothermic, which means that it produces heat. The heat being generated raises the temperature of surrounding materials, which in turn begin to release more combustible gases into the environment and begins a chemical chain reaction of heat release and burning. At this point the fire may go out if the first object completely burns before another begins or the fire can progress to the next stage, which is called the Free Burning Phase. The Free Burning Phase The second stage of fire growth is the free or open burning stage. When an object in a room starts to burn, (such as the armchair in Figure 1, following page), it burns in much the same way as it would in an open area. In this phase of the fire, oxygen in the air is drawn into the flame and combustible gases rise to the ceiling and spread out laterally. Simultaneously, the materials that are burning continue to release more heat, which heats nearby objects and materials to their ignition temperature, and they begin burning as well. Inside a room, unlike in an open area, after a short period of time confinement begins to influence fire development. The combustible gases that have collected on the ceiling will eventually begin to support fire and will begin to burn. Thermal radiation from this hot layer begins to heat the ceiling, the upper walls, and all the objects in the lower part of the room which will augment both the rate of burning of the original object and the rate of flame spread over its surface. When this occurs, the structure fire reaches a critical point: either it has sufficient oxygen available to move on to the next stage or the fire has insufficient oxygen available to burn and it progresses back to the incipient stage. However, since structures are not airtight, there is a low likelihood of the fire depleting the available oxygen. During this stage of fire growth, toxic chemicals released by the fire and high heat are enough to burn people in the immediate area and disorient and/or incapacitate people in the structure. Without rapid response and aggressive intervention by an adequately staffed fire department, the fire will likely spread to the rest of the structure. 8

239 Figure 1: Fire Growth in a Compartment. 8 The above figure depicts the growth of fire in a compartment, which is an enclosed space or room in a building. In a compartment the walls, ceiling, floors, and objects absorb radiant heat produced by the fire. Unabsorbed heat is reflected back to the initial fuel source, which is depicted by the armchair above. This reflected heat continues to increase the temperature of the fuel source and therefore the rate of combustion. Hot smoke, combustible gases, and super-heated air will then rise to the ceiling and spread at first laterally across the ceiling, but later downward towards other fuel sources and the floor of the compartment. As this toxic, super-heated cloud touches cooler materials, the heat is conducted to them, thus increasing their temperature and eventually leading to pyrolysis, which is the process where a fuel source begins to release flammable vapor. This release of flammable vapor leads to further fire growth and eventually flashover. Flashover is the point at which all exposed fuel sources in a compartment ignite. If there is sufficient oxygen, then the fire will continue to grow and the heating of the other combustibles in the room will continue to the point where they reach their ignition temperatures more or less simultaneously. If this occurs, all combustible materials in the room will spontaneously ignite. This transition from the burning of one or two objects to full room involvement is referred to as flashover. 9 Flashover Flashover, when it occurs, is the most significant event during a structure fire. As combustible gases are produced by the two previous stages, they are not entirely consumed and are therefore available fuels. These available fuels rise and form a superheated gas layer at the ceiling that continues to increase, until it begins to bank down to the floor, heating all combustible objects regardless of their proximity to the burning object. In a typical structure fire, the gas layer at the ceiling can quickly reach temperatures of 1,200 F and higher. With enough existing oxygen at 8 Image courtesy of University of California at Davis Fire Department 9 J.R. Mehaffey, Ph.D., Flammability of Building Materials and Fire Growth, Institute for Research in Construction (1987) 9

240 the floor level, flashover occurs, which is when everything in the room ignites at once. The instantaneous eruption of flames generates a tremendous amount of heat, smoke, and pressure. The pressure generated from this explosion has enough force to push fire beyond the room of origin and into the rest of the structure, as well as through doors and windows. As has been noted, at the time of flashover, windows in the room will break. When these windows break, as a result of the increased pressure in the room, a fresh supply of air from the outside of the building is available to help the fire grow and spread. Based on the dynamics of fire behavior in an unprotected structure fire, any decrease in emergency unit response capabilities will correlate directly with an increase in expected life, property, and economic loss. The Importance of Adequate Staffing: Concentration NFPA 1500 and 1710 both recommend that a minimum acceptable fire company staffing level should be four members responding on, or arriving with, each engine and ladder company responding to any type of fire. A prime objective of fire service agencies is to maintain enough strategically located personnel and equipment so that the minimum effective firefighting force can reach a reasonable number of fire scenes before flashover occurs. 10 Of utmost importance in limiting fire spread is the quick arrival of sufficient numbers of personnel and equipment to attack and extinguish the fire as close to the point of origin as possible, as well as rescue any trapped occupants and care for the injured. Rapid and aggressive interior attack of structure fires, as close as possible to the point of origin, can reduce human and property losses. Sub-optimal staffing of arriving units may delay such an attack, thus allowing the fire to progress to more dangerous conditions for firefighters and civilians. If the arriving units have adequate resources to handle the situation, then they will fight the fire aggressively and offensively. They will attack the problem head-on and, following department standards, will accomplish their objectives efficiently, effectively, and safely. If they do not have adequate resources to aggressively handle the situation, then they will have to fight the fire in a defensive mode of attack. This mode will continue until enough resources can be massed to then change to an aggressive, offensive attack. 11 Staffing deficiencies on primary fire suppression apparatus negatively affects the ability of the fire department to safely and effectively mitigate emergencies and therefore correlates directly with higher risks and increased losses, both physically and economically. Continued fire growth beyond the time of firefighter on scene arrival is directly linked to the time it takes to initiate fire 10 University of California at Davis Fire Department website; site visited June 7, < > 11 National Institute for Occupational Safety and Health, High-Rise Apartment Fire Claims the Life of One Career Fire Fighter (Captain) and Injures Another Career Fire Fighter (Captain) Texas, 21 October

241 suppression operations. As indicated in Table 1, responding companies staffed with four firefighters are capable of initiating critical fire ground operational tasks more efficiently than those with crew sizes below industry standards. Engine Company Duties Ladder Company Duties Fireground Tasks Advance Attack Line % Change Water on Fire % Change Primary Search % Change Venting Time % Change 4 Firefighters 0:03:27 0:08:41 0:08:47 0:04:42 3 Firefighters 0:03:56 12% Less Efficient 0:09:15 6% Less Efficient 0:09:10 4% Less Efficient 0:07:01 32% Less Efficient 2 Firefighters 0:04:53 29% Less Efficient 0:10:16 15% Less Efficient 0:12:16 28% Less Efficient 0:07:36 38% Less Efficient Table 1: Impact of Crew Size on a Low-Hazard Residential Fire. 12 The above table compares and contrasts the efficiencies of suppression companies in the completion of critical tasks for fire control and extinguishment. The smaller the crew size, the more tasks an individual must complete as a team member, which contributes to the delay in initiating fire attack and contributes to diminished efficiency in stopping fire loss. Currently, the Department staffs fire suppression apparatus with four firefighters. First-arriving companies staffed with four firefighters are more efficient in all aspects of initial fire suppression and search and rescue operations compared to two- or three-person companies. There is a significant increase in time for all the tasks if a company arrives on scene staffed with only three firefighters compared to four firefighters. According to the NIST Report on Residential Fireground Field Experiments, four-person crews are able to complete time critical fireground tasks 5.1 minutes (nearly 25%) faster than three-person crews. The increase in time to task completion corresponds with an increase in risk to both firefighters and trapped occupants. With four-person crews, the effectiveness of first-arriving engine company interior attack operations increases by 12% to 29% efficiency compared to three- and two-person crews respectively. The efficacy of search and rescue operations also increases by 4% to 28% with four-person crews compared to three- and two-person crews. Moreover, with a four-person company, because the first-in unit is staffed with a sufficient number of personnel to accomplish its assigned duties, the second-in company does not need to support first-in company operations and is therefore capable of performing other critical fireground tasks that are likely to improve safety and outcomes. At the scene of a structure fire, the driver/operator of the first engine company on the scene must remain with the apparatus to operate the pump. This leaves one firefighter to assist the operator 12 Averill, J.D. et al. (2010). Report on Residential Fireground Field Experiments. NIST Technical Note National Institute of Standards and Technology; Gaithersburg, MD, April

242 in securing a water source from a hydrant and two firefighters to deploy a hoseline and stretch it to the fire. After assisting the operator, the third firefighter should begin to assist the other two firefighters with advancing the hoseline into the building and to the location of the fire. Before initiating fire suppression, the supervising officer of the first arriving engine company is also responsible for walking around the building to assess the situation, determine the extent of the emergency, and request any additional resources necessary to mitigate the fire. Similarly, the driver/operator of the first arriving ladder company must remain with the apparatus to safely position and operate the aerial device while the other three firefighters also perform critical fireground tasks such as ventilation and search and rescue. Due to the demands of fireground activities, a fire attack initiated by companies with only three or fewer firefighters is not capable of effecting a safe and effective fire suppression and/or rescue operation until additional personnel arrive. Insufficient numbers of emergency response units, or inadequate staffing levels on those units, exposes civilians and firefighters to increased risk. It also further drains already limited fire department resources, and stresses the emergency response system by requiring additional apparatus to respond from further distances. Failing to assemble sufficient resources on the scene of a fire in time to stop the spread and extinguish the fire, conduct a search, and rescue any trapped occupants puts responding firefighters and occupants in a dangerous environment with exponential risk escalation such that it is difficult to catch up and mitigate the event to a positive outcome. 12

243 The Importance of Crew Size to Overall Scene Time Studies have shown that the more personnel that arrive on engine and ladder truck companies to the scene of a fire, the less time it takes to complete all tasks associated with fire suppression, search and rescue, and other critical fireground activities. As dispatched units arrive with sufficient numbers of firefighters, the overall time on the scene of the emergency and on-scene risk levels, decrease since critical fireground tasks can be completed simultaneously rather than in sequence. In other words, the more firefighters available to respond and arrive early to a structure fire, the less time it takes to extinguish the fire and perform search and rescue activities, thus reducing the risk of injury and death to both firefighters and trapped occupants and reducing the economic loss to the property. Overall Scene Time Breakdown by Crew Size Scenario Total Time Efficiency 4-Person Close Stagger 0:15:14 3-Person Close Stagger 0:20:30 25% Less Efficient 2-Person Close Stagger 0:22:16 29% Less Efficient 4-Person Far Stagger 0:15:48 3-Person Far Stagger 0:21:17 26% Less Efficient 2-Person Far Stagger 0:22:52 31% Less Efficient Table 2: The Relationship between Crew Size and Scene Time. 13 The above table displays how companies staffed with larger crew sizes will be on the scene of an emergency for a shorter time than smaller sized companies. This lag on scene could be translated to mean that emergency resources will be unavailable longer to address other emergencies that may arise. As Table 2 shows, units that arrive with only two firefighters on an engine or ladder truck are on the scene of a fire almost 7 minutes longer than units that arrive with four firefighters on each crew. Responding units arriving with only three firefighters on an apparatus are on the scene of a fire 5 to 6 minutes longer than units that arrive with four firefighters on each apparatus. In addition to crew size, the time between the arriving crews matters to overall effectiveness and total on scene time. In the NIST study on the low hazard residential fire, close stagger was defined as a 1-minute time difference in the arrival of each responding company. Far stagger was defined as a 2- minute time difference in the arrival of each responding company The results show a 13 Ibid. 14 Ibid. 15 One-minute and two-minute arrival stagger times were determined from analysis of deployment data from more than 300 U.S. fire departments responding to a survey on fire department operations conducted by the International Association of Fire Chiefs and the International Association of Firefighters. 13

244 consistent pattern of units arriving with four firefighters in a close stagger or far stagger will decrease the overall time at the scene of the emergency compared to units that arrive with two or three firefighters, and are more efficient in fire suppression tasks as well. Physiological Strain on Smaller Crew Sizes The same NIST study also examined the relationship between crew size and physiological strain. Two important conclusions were drawn from this part of the experiments. Average heart rates were higher for members of small crews. These higher heart rates were maintained for longer durations. 16 In 2014 alone, 57% of all firefighter fatalities were related to overexertion. 17 There is strong epidemiological evidence that heavy physical exertion can trigger sudden cardiac events. 18 Smaller crews are responsible for performing a number of task that are designed to be performed by multiple people and frequently in teams of two. This means that firefighters on smaller crews are required to work harder than larger crews to accomplish multiple tasks. Additionally, as discussed earlier, firefighters on smaller crews will also be working longer than larger sized crews. Working harder and longer in high heat and dangerous, stressful environments increases the likelihood of firefighters suffering an injury, or worse dying, as a result of overexertion. Charts 1 and 2, on the following pages, highlight the cardiovascular impact on firefighters based on crew size for the first arriving engine and truck company. The heart rates of firefighters of crew sizes ranging from 2 to 5 firefighters were measured as they participated in the NIST study. The study was able to conclude that not only do smaller crews work harder and longer than larger crews, their heart rates are also more elevated for longer periods of time as well. This increases the risk of firefighters suffering an injury or death from overexertion. A firefighter suffering a medical emergency on the scene of a working fire, EMS, or rescue incident negatively impacts outcomes and increases the risk to the community, the citizen requiring assistance, and the firefighter. 16 Averill, J.D. et al. (2010). Report on Residential Fireground Field Experiments. NIST Technical Note National Institute of Standards and Technology; Gaithersburg, MD, April Fahy, R.F., LeBlanc, P.R., Molis, J.L. (June, 2015) Firefighter Fatalities in the United States NFPA. 18 Albert, C.A., Mittleman, M.A., Chae C.U., Lee, I.M., Hennekens, C.H., Manson, J.E. (2000) Triggering Sudden Death from Cardiac Causes by Vigorous Exertion. N Engl J Med 343(19):

245 Chart 1: Average Peak Heart Rate of First Engine (E1) with Different Crew Sizes by Riding Position. 19 In Chart 1, heart rates are expressed as a percent of maximal age-predicted maximal HR. The average heart rates for firefighters on the first engine company were above 80% of age-predicted maximum values when only 2 firefighters were working. When staffing was at 2 firefighters, the driver of the apparatus had an average peak heart rate of nearly 90% of the age-predicted maximum. This is largely due to the number of additional tasks the driver must perform to prepare the engine to pump water to the fire and then join the officer to stretch hose to the fire. As can be seen, the larger the crew size, the lower the heart rate. 20 Decision makers could potentially reduce their liability for firefighter injury and death by ensuring staffing is compliant with the minimum recommended industry standards of four firefighters per apparatus. 19 Riding position for Chart 1 are as follows: Driver, Officer, Firefighter 1-Right Bucket (RB) seat, Firefighter 2- Left Bucket (LB) seat, Firefighter 3- Center Bucket (CB) seat. A fire company that is staffed with 2 will consist of a Driver and an Officer. 20 Smith, D.L., Benedict, R. Effect of Deployment of Resources on Cardiovascular Strain of Firefighters. April, Pp

246 Chart 2: Average Peak Heart Rate of First Truck (T1) with Different Crew Sizes by Riding Position. 21 In Chart 2, heart rates are expressed as a percent of maximal age-predicted maximal HR. The average heart rates for firefighters on the first truck company were above 80% of age-predicted maximum values when only 2 firefighters were working. 22 Decision makers could potentially reduce their liability for firefighter injury and death by ensuring staffing is compliant with the minimum recommended industry standards of four firefighters per apparatus. 21 Riding position for Chart 2 are as follows: Driver, Officer, Firefighter 1-Right Bucket (RB) seat, Firefighter 2- Left Bucket (LB) seat, Firefighter 3- Center Bucket (CB) seat. A fire company that is staffed with 2 will consist of a Driver and an Officer. 22 Smith, D.L., Benedict, R. Effect of Deployment of Resources on Cardiovascular Strain of Firefighters. April, Pp

247 The Importance of a Rapid Response Uncontained fire in a structure grows exponentially with every passing minute. Any delay in the initiation of fire suppression and rescue operations, such as the 5- to 7-minute delay that results from smaller sized crews of firefighters, translates directly into a proportional increase in expected property, life, and economic losses as is shown in Table 3, following page. It warrants emphasizing that if a structure has no automatic suppression or detection system, a more advanced fire may exist by the time the fire department is notified of the emergency and is able to respond. Fires of an extended duration weaken structural support members, compromising the structural integrity of a building and forcing operations to shift from an offensive to defensive mode. 23 As with inadequate staffing, this type of operation will continue until enough resources can be amassed to then change to an aggressive, offensive attack. In the NIST study on the low-hazard residential fire, researchers also used fire modeling to mark the degree of the toxicity of the environment for a range of growth fires (slow, medium, and fast). Occupant exposures were calculated both when firefighters arrive earlier to the scene, and when arriving later. The modeling showed that the longer it takes for firefighters to rescue trapped occupants, the greater the risk posed to both the firefighters and occupants by increasing atmospheric toxicity in the structure. 23 According to the NFPA, it s important to realize that every 250 GPM stream applied to the building can add up to one ton per minute to the load the weakened structure is carrying. 17

248 Rate Per 1,000 Fires Flame Spread: Civilian Deaths Civilian Injuries Average Dollar Loss per Fire 24 Confined fires (identified by incident type) $ Confined to object of origin $2, Confined to room of origin, including $3, confined fires by incident type 25 Beyond the room, but confined $9, to floor of origin Beyond floor of origin $76, Table 3: The Relationship between Fire Extension and Fire Loss. 26 The above table displays the rates of civilian injuries and deaths per 1,000 fires, as well as the average property damage. Following the far left column from top to bottom, each row represents a more advanced level of fire involvement in a residence. Typically, the more advanced the fire, the larger the delay in suppression. Assuming an early discovery of a fire, companies staffed with larger crew sizes help to minimize deaths, injuries, and property loss. This highlights why a 5- to 7- minute delay in suppression activities by smaller sized crews results in higher economic losses to a residence. 24 Values are expressed in Canadian Dollars using exchange rates from 9/16/ NFIRS 5.0 has six categories of confined structure fires, including cooking fires confined to the cooking vessel, confined chimney or flue fire, confined incinerator fire, confined fuel burner or boiler fire or delayed ignition, confined commercial compactor fire, and trash or rubbish fire in a structure with no flame damage to the structure or its contents. Homes include one- and two-family homes (including manufactured housing) and apartments or other multifamily housing. These statistics are national estimates based on fires reported to U.S. municipal fire departments and so exclude fires reported only to federal or state agencies. National estimates are projections. Casualty and loss projections can be heavily influenced by the inclusion or exclusion of one unusually serious fire. Property damage has not been adjusted for inflation. 26 National Fire Protection Association, NFPA 1710 (2016), Table A (b) Fire Extension in Residential Structures,

249 OSHA s 2 In/2 Out Regulation & Ontario s Occupational Health and Safety Act The 2 In/2 Out regulation is part of paragraph (g)(4) of the United States Occupational Safety and Health Administration s (OSHA) revised respiratory protection standard, 29 CFR The focus of this important section is the safety of firefighters engaged in interior structural firefighting. OSHA s requirements for the number of firefighters required to be present when conducting operations in atmospheres that are immediately dangerous to life and health (IDLH) also covers the number of persons who must be on the scene before firefighting personnel may initiate an interior attack on a structural fire. An interior structural fire (an advanced fire that has spread inside of the building where high temperatures, heat and dense smoke are normally occurring) would present an IDLH environment and, therefore, require the use of respirators. In those cases, at least two standby persons, in addition to the minimum of two persons inside needed to fight the fire, must be present before firefighters may enter the building This requirement is mirrored in NFPA 1500, which states that a rapid intervention team shall consist of at least two members and shall be available for rescue of a member or a team if the need arises. Once a second team is assigned or operating in the hazardous area, the incident shall no longer be considered in the initial stage, and at least one rapid intervention crew shall be required. The need for the presence of at least four firefighters to initiate interior operations is also addressed in the OFM s Fire Ground Effectiveness Sub-Model, Fire Attack Teams, where it is prohibited for a 3-person crew to initiate any interior operations except in very limited circumstances (such as a victim collapsed in close proximity to a window or exterior doorway, or where the fire is confined to a very small, readily accessible area). When conducting interior fire suppression operations, Section 21 of Ontario s Occupational Health and Safety Act, formerly known as the Occupational Health and Safety Act, R.S.O 1990, c. 0.1 (hereafter referred to as Section 21) emphasizes the need for a minimum of two firefighters operating on the interior of a structure shall be supported by at least two additional firefighter on the exterior of the structure. This is because of the inherent dangers of operating in an environment that presents an immediate danger to life and health, such as a structure fire, increase the possibility of situations occurring where a firefighter may be overcome, injured, or require assistance. When teams with a minimum of two members operate in the interior of a structure, one team member can provide assistance to the other or call for additional help if it is needed. 29 Furthermore, when there are 27 According to NFPA standards relating to fire fighter safety and health, the incident commander may make exceptions to these rules if necessary to save lives. The Standard does not prohibit fire fighters from entering a burning structure to perform rescue operations when there is a reasonable belief that victims may be inside. 28 Paula O. White, letter to Thomas N. Cooper, 1 November 1995 (OSHA) 29 The Ontario Fire Service Health and Safety Advisory Committee. Guidance for Improving Health and Safety in the Fire Service: Guidance Note 2-2: The Buddy System. April Retrieved from 19

250 firefighters conducting interior fire suppression operations there must be at least two additional firefighters on the exterior assigned to rescue those personnel operating on the interior if needed. Personnel assigned to this role must know they are assigned as the Rapid Intervention Crew, be properly equipped, and be ready to deploy immediately when needed. 30 One of the most important elements in limiting fire spread is the quick arrival of sufficient numbers of personnel and equipment to attack and extinguish the fire as close to the point of origin as possible, as well as rescue any trapped occupants and care for the injured. Several existing National Fire Protection Association standards address this time-critical issue. NFPA Standard 1710 recommends that fire companies whose primary functions are to pump and deliver water and perform basic firefighting at fires, including search and rescue shall be staffed with a minimum of four on-duty members, 31 while fire companies whose primary functions are to perform the variety of services associated with truck work, such as forcible entry, ventilation, search and rescue, aerial operations for water delivery and rescue, utility control, illumination, overhaul and salvage work shall [also] be staffed with a minimum of four on-duty members. 32 NFPA 1710 further states that ladder or truck companies In jurisdictions with a high number of incidents or geographical restrictions, as identified by the AHJ, 33 these companies shall be staffed with a minimum of five on-duty members and In jurisdictions with tactical hazards, high-hazard occupancies, or dense urban areas, as identified by the AHJ, these companies shall be staffed with a minimum of six on-duty members The Ontario Fire Service Health and Safety Advisory Committee. Guidance for Improving Health and Safety in the Fire Service: Guidance Note 6-11: Rapid Intervention Teams (Rescue). January Retrieved from 31 NFPA 1710, and NFPA 1710, and Authority Having Jurisdiction. 34 NFPA 1710, , , , and

251 Figure 2: The OSHA 2 IN/2 Out Regulation. The above figure depicts the number of firefighters required to meet OSHA regulation , which demands one firefighter outside for every firefighter inside. The firefighters outside can support a secondary attack line and facilitate the rescue of trapped or disabled firefighters should the need arise. In this scenario, the driver/operator of the apparatus is not counted towards the total number of firefighters. A number of incidents exists in which the failure to follow the 2 In/2 Out regulation have contributed to firefighter casualties. For example, in Bridgeport, Connecticut in July 2010, two firefighters died following a fire where NIOSH later found that although a Mayday was called by the firefighters, it wasn t responded to promptly as there was no Incident Safety Officer or Rapid Intervention Team (RIT) readily available on scene. In a second case, two firefighters were killed in a fire in San Francisco, California in June The initial RIT was re-assigned to firefighting duties, and the back-up RIT did not arrive on scene until after the victims were removed. 21

252 Only 4 firefighters are capable of initiating effective emergency rescue operations Two firefighters enter structure and initiate fire suppression and/ or emergency rescue of trapped occupants One firefighter expected to maintain an uninterrupted water supply to firefighters working inside the burning structure and also remain available for rapid intervention if firefighters inside become trapped. Two firefighters remain immediately available to monitor operations and rescue trapped firefighters, if necessary Figure 3: Emergency 2 In/2 Out Operations. In the emergency model depicted above, the arriving fire apparatus is staffed with a crew of 4 personnel and operates under emergency conditions. In this case, the driver/operator of the fire apparatus is also counted as a firefighter, which means that firefighter must be dressed in personal protective equipment (PPE) and be ready to participate in rescue if the need should arise. When confronted with occupants trapped in a burning structure and a single fire company is on scene, only a company staffed with four firefighters is able to initiate emergency search and rescue operations in compliance with the 2 In/2 Out regulation. As indicated in the previous graphic, this requires the complete engagement of every firefighter from the first-in fire company, staffed with four, to participate in the effort, and means that the driver-operator of the apparatus must tend to the pump to ensure the delivery of water to the firefighters performing the initial attack and search and rescue operations and be prepared to make entry with the remaining firefighter should the crew operating inside become trapped. Regardless, when there exists an immediate threat to life, only a company of four firefighters can initiate fire suppression and rescue operations in compliance with 2 In/2 Out regulation, and in a manner that minimizes the threat of personal injury. In crews with fewer than 4 firefighters, the first-in company must wait until the arrival of the second-in unit to initiate safe and effective fire suppression and rescue operations. This condition underlines the importance and desirability of fire companies to be staffed with a minimum of four firefighters, and stresses the benefit of four-person companies and their ability to save lives without having to wait for the second-in company to arrive. 22

253 Initial Full Alarm Assignment Initial Full Alarm Assignment Capability, as outlined in NFPA Standard 1710, recommends that the fire department shall have the capability to deploy an initial full alarm assignment within a 480-second travel time to 90 percent of the incidents [and that the] initial full alarm shall provide for the following: Assignment Incident Command Uninterrupted Water Supply Water Flow from Two Handlines Support for Handlines Victim Search and Rescue Team Ventilation Team Aerial Operator Initial Rapid Intervention Crew (IRIC) Required Minimum Personnel for Full Alarm Required Personnel 1 Officer 1 Pump Operator 4 Firefighters (2 for each line) 2 Firefighters (1 for each line) 2 Firefighters 2 Firefighters 1 Firefighters 2 Firefighters 14 Firefighters & 1 Scene Commander Table 4: NFPA 1710, This breakdown of the expected capabilities of a full alarm assignment, in compliance with NFPA 1710, requires a minimum contingent of 15 fire suppression personnel. NFPA 1710 also requires that supervisory chief officers shall be assisted by a staff aide 35 which will increase onscene staffing to 16 personnel required to arrive at the scene of a structure fire within 8 minutes of travel. Although not specifically discussed in the standard, an industry best practice is to have a second uninterrupted water supply which requires a second dedicated engine pump operator. This second, dedicated pump operator brings the total count of firefighters to NFPA 1710, and

254 Figure 4: Initial Full Alarm Assignment Deployed Within 8 Minutes. The above figure depicts the full alarm assignment discussed in NFPA 1710, with an additional firefighter to act as the incident commander s aide, and another additional firefighter to act as a pump operator for a supply apparatus. In addition, NFPA 1710, states, The Fire Department shall have the capability for additional alarm assignments that can provide for additional command staff, members, and additional services, including the application of water to the fire; engagement in search and rescue, forcible entry, ventilation, and preservation of property; safety and accountability for personnel; and provision of support activities The ability of adequate fire suppression forces to greatly influence the outcome of a structural fire is undeniable and predictable. Data generated by the NFPA provides empirical proof that a rapid and aggressive interior attack can substantially reduce loss of life and the loss of property associated with structural fires. Each stage of fire extension beyond the room of origin directly increases the rate of civilian deaths, injuries, and property damage. Fire growth is exponential, growing in a non-linear manner over time. Extending the time for crew assembly by waiting for additional crews to arrive causes on-scene risk to escalate. The 24

255 higher the risks at the time firefighters engage in fire suppression, the greater the chance of poor outcomes including civilian injury or death, firefighter injury or death, and increased property loss. 25

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257 High-Rise Operations Although this section specifically addresses fire response to high-rise buildings, it is important to note that the discussion can be extrapolated to large area buildings such as manufacturing centers, warehouses, grocery stores, schools, and other structures with a high fire load and populations. Overview of High-Rises High-rise buildings were once found exclusively in urban cities. However, today they are commonly found in small and mid-sized suburban communities as well. Many high-rise buildings in suburban areas are newer, shorter, and protected by automatic sprinkler systems, although this is not always a guarantee. NFPA 101, Life Safety Code, 2015 Edition and the International Code Council s International Building Code both define a high-rise structure as a building more than 75 ft. (23 m) in height, measured from the lowest level of fire department vehicle access to the bottom of the highest occupied floor. High-rises, which are described in NFPA 1710 A as high-hazard occupancies, represent an extraordinary challenge to fire departments and are some of the most challenging incidents firefighters encounter. High-rise buildings may hold thousands of people above the reach of fire department aerial devices and the chance of rescuing victims from the exterior is greatly reduced once a fire has reached flashover. The risks to firefighters and occupants increase in proportion to the height of the building and the height of the fire above grade level. 36 This is especially true once firefighters are operating above the reach of aerial ladders on truck companies. In these situations, the only viable means of ingress or egress is the interior stairs. Therefore, a sound fire department deployment strategy, effective operational tactics, and engineered fire protection systems cannot be separated from firefighter safety. As in any structure fire, engine company and truck company operations must be coordinated. High-rise buildings present a unique threat to the fire service. Multi-floor fires such as the Interstate Building Fire, One Meridian Plaza Fire, World Trade Center collapse, Cook County Administration Building Fire, and Deutsche Bank Building Fire each represented serious challenges to the operational capabilities of a modern fire department. According to the NFPA, between 2007 and 2011, there were an estimated 15,400 reported high-rise structure fires per year that resulted in associated losses of 46 civilian deaths, 520 civilian injuries, and $ Klaene, B. and Sanders, R. (2007). Structural Firefighting: Strategies and Tactics- High-Rise. Jones and Bartlett

258 million in direct property damage. Office buildings, hotels, apartment buildings, and health care facilities accounted for nearly half of these high-rise fires. 37 Although the frequency of fires in high-rise structures is low, they pose a high consequence of loss with regards to injury, loss of life, and property damage. Even if a department does not respond to high-rise buildings at present, it may in the future as urban sprawl continues and/or jurisdictional border restrictions and population growth require taller buildings to meet residential needs. High-Rise Firefighting Tactics As has been stated, in a high-rise fire the risks to firefighters and occupants increase in proportion to the height of the building and the height of the fire above ground level. As the level of the fire floor gets higher, firefighters are required to carry more equipment further and must rely more on the building s standpipe system. A standpipe system is a piping system with discharge outlets at various locations usually located in stairwells on each floor in high-rise buildings that is connected to a water source with pressure supplemented by a fire pump 38 located in the building and/or a fire apparatus with pumping capabilities. A fire in a high-rise building can threaten occupants and responding firefighters. Because of the amount of time it takes firefighters encumbered with equipment to access the involved floors, the fire may have expanded well past the area of origin. This means that firefighters can encounter a large volume of fire and darkened conditions when they arrive on the involved floors. This can be further complicated if the building is not equipped with a sprinkler system. Additionally, open-layout floor plans such as office buildings with cubicle farms can challenge both the standpipe s flow capacity and fire department resources in regards to search, rescue, and hoseline deployment. The most effective way to extinguish a high-rise fire is by mounting an offensive attack as early as possible, because in the vast majority of historic high-rise fires, the best life safety tactic is extinguishing the fire. Good high-rise firefighting tactics and firefighter/occupant safety cannot be separated. As with a residential structure fire, the first arriving suppression apparatus should be on the scene within four minutes of travel time. However, when responding to any high-hazard buildings or structures, which include high-rises, first responding fire apparatus should be staffed with five to six firefighters per NFPA 1710, upon the determination of the AHJ. Similar to residential structure fires, there are several critical tasks that must be accomplished. However, unlike residential firefighting in a 2,000 square foot residence, firefighters working at a high-rise fire must travel upwards of more than three stories and carry additional equipment beyond the normal requirements. Additionally, as it takes longer to assemble an effective 37 Hall, J.R. (2013), High-Rise Building Fires. NFPA. 38 Structural Firefighting Strategy and Tactics 2 nd Edition. Klaene B., Sanders R. NFPA

259 firefighting force and to access the fire floor, firefighters are likely to encounter a large volume of fire and will therefore have an extended fire attack. Because of this, it is necessary to establish an equipment supply chain to transport equipment and resources up and down the building. Search and Rescue Search and rescue are critical fireground tasks that comprise a systematic approach to locating possible victims and removing those victims from known danger to a safe area. In a residential structure fire, searches are normally conducted by a crew of two firefighters, supplemented by an attack or ventilation crew. However, high-rise structures pose challenges regarding search and rescue that are not typically encountered in residential housing. For commercial high-rises and wide-area structures, large open areas and cubicle farms require additional search and rescue teams so that thorough searches can occur over a larger area than found in most residences. In addition to these larger areas, search and rescue can be further complicated because conscious victims may retreat to areas in an attempt to find shelter from heat and smoke. These areas may differ from places where they are typically seen by coworkers, making locating them difficult if they are unaccounted for. In residential high-rises, apartments typically lack two exits and usually share a common hallway for egress. Doors left open by victims fleeing fire can allow fire and smoke to spread into the hallway and impact escape attempts. Firefighters will be slowed in their search since they will be required to force their way into numerous apartments to search for victims. For this reason, regardless of commercial or residential, it is essential for there to be multiple search and rescue teams operating per involved floor to quickly locate victims in large surface areas. It is also necessary for additional search and rescue teams to search the floors above the fire and the highest floor of the building, due to how fire and smoke spread to the rest of the building. Search and rescue teams should also be supplemented with evacuation management teams to assist injured or disabled victims down the stairwells so searching can continue. Because of the larger search area, NFPA 1710 requires a minimum of four firefighters for searching and a minimum of four firefighters for evacuation management teams. Fire Extinguishment Fire extinguishment is a critical factor, since the intensity and size of the fire will determine the extent to which combustion gases are heated and how high they will rise inside the building. Building suppression systems, both active and passive, can impact fire growth, occupant safety, and firefighter safety and effectiveness. Such features include active fire detection and automatic sprinkler systems that are designed to either extinguish the fire or contain it until firefighters arrive. Once firefighters are on scene, they will complete a series of fire confinement and extinguishment tasks. Firefighters access the structure, locate the fire, locate any avenues of 29

260 spread, place hose lines, and establish a water supply. Once a water supply is established, water should be placed at the seat of the fire or in the compartment containing the fire to extinguish it. Unlike residential structure fires where hose lines can be stretched from the fire apparatus into the structure, high-rise structures require the use of standpipe systems to combat fire. This requires firefighters to carry multiple sections of hose to the affected floors and connect into the system to fight fire. Minimally, firefighters must deploy two hose lines to the involved floor and one hose line to the floor above the fire. The third hose line supports a number of critical tasks in the suppression effort. Principally, it is used to protect search and rescue teams, but also to stop the spread of fire as a result of conduction and convection through exposed pipes, metal framing, and ventilation systems. Ventilation Ventilation affects both search and rescue and fire extinguishment. Coordinated ventilation may be implemented at any time during the operation, but it should be coordinated with suppression and interior rescue activities. Ventilation is used to channel and remove heated air, smoke, fire gases, and other airborne contaminants. Applying proper ventilation at the right time and place is key to firefighter and occupant safety. Venting at the wrong time or place can draw active fire toward fresh air, which will injure or kill anyone in its path. In instances of high-rise fire suppression, adequate and appropriate ventilation is important to keep stairways free of smoke and noxious gases for victims who are evacuating. Because of the size of high-rise buildings and high-hazard structures in general, a larger number of firefighters is required for a ventilation team than would be for a residential structure. NFPA 1710 requires a minimum of four firefighters to be assigned to ventilation. Support As has been discussed, fire suppression in a high-rise or high-hazard structure requires the establishment of a supply chain to shuttle equipment to different locations. Additionally, with increased resources and personnel, there is an increased need for additional supervision and accountability. One critical support variable in high-rise fire operations is the availability of reliable elevators. If firefighters can safely use the elevators to move people and equipment, fire-ground logistics may be significantly improved. When the fire is located several floors above ground level, there is a strong inclination to use the elevators. However, fire service access elevators 39 may not be available in all buildings. Therefore, adequate stairways are necessary for firefighters to transport equipment and reach the fire floor for suppression. 39 A fire service elevator is engineered to operate in a building during a fire emergency and complying with prescriptive building code requirements and the American Society of Mechanical Engineers (ASME) A 17.1 safety standard for elevators. 30

261 Moving supplies and staff up 10, 20, 30, or more stories is an arduous task. If it is not properly managed, firefighters may be exhausted and unable to fight the fire or rescue trapped occupants. Additionally, joint use of stairways by firefighters moving upward and occupants attempting to evacuate may increase the overall evacuation time of the occupants, as well as delay the firefighters efforts to begin critical tasks such as fire suppression or search and rescue operations. As such, it is important to have multiple firefighters to help carry equipment upstairs and manage resource distribution. To accomplish the critical fireground tasks associated with high-rise firefighting and meet the minimum staffing objectives for task completion, NFPA 1710 recommends the following company sizes for the first arriving unit(s) on the scene within four minutes of travel time for response to high-hazard structures: In jurisdictions with a high number of incidents or geographical restrictions, as identified by the AHJ, these companies shall be staffed by a minimum of five on-duty members. 40 In jurisdictions with tactical hazards, high-hazard occupancies, or dense urban areas, as identified by the AHJ, these fire companies shall be staffed with a minimum of six onduty members. 41 As indicated by the tasks that must be accomplished on a high-rise fireground, understanding the required resources is critical. The number of firefighters needed to safely and effectively combat a high-rise fire may be large. Although an offensive fire attack is the preferred strategy whenever conditions and resources permit, a defensive attack that limits operations to the outside of a building and generally results in more property damage must be considered when risks to firefighter safety are too great and benefits to building occupants are negligible. The offensive vs. defensive decision is based on a number of factors: fireground staffing available to conduct an interior attack, a sustained water supply, the ability to conduct ventilation, and risk vs. benefit analysis regarding firefighter and occupant safety. Table 7, on the next page, displays the minimum number of firefighters required to arrive in the first full alarm assignment to a high-rise fire. 40 NFPA NFPA , , and

262 Assignment Incident Command Uninterrupted Water Supply Water Flow from Two Handlines on the Involved Floor Water Flow from One Handline One Floor Above the Involved Floor RIC Two Floors Below the Involved Floor Victim Search and Rescue Team Point of Entry/Oversight Fire Floor Point of Entry/Oversight Floor Above Evacuation Management Teams Elevator Management Lobby Operations Officer Trained Incident Safety Officer Staging Officer Two Floors Below Involved Floor Equipment Transport to Floor Below Involved Floor Firefighter Rehabilitation Vertical Ventilation Crew External Base Operations Required Personnel 1 Incident Commander 1 Incident Command Aide 1 Building Fire Pump Observer 1 Fire Engine Operator 4 Firefighters (2 for each line) 2 Firefighters (1 for each line) 4 Firefighters 4 Firefighters (2 per team) 1 Officer 1 Officer s Aide 1 Officer 1 Officer s Aide 4 Firefighters ( 2 per team) 1 Firefighter 1 Officer 1 Officer 1 Officer 2 Firefighters 2 Firefighters ( 1 must be ALS) 1 Officer 3 Firefighters 1 Officer 2 EMS ALS Transport Units 4 Firefighters Required Minimum Personnel for Full Alarm 36 Firefighters 1 Incident Commander 6 Officers Table 5: Number of Firefighters for an Initial Full Alarm to a High-Rise Fire. Fighting fire in high-rise structures poses many unique obstacles and challenges other than are found in a residential structure fire. Hose cannot be deployed directly from fire apparatus and needs to be carried, with other equipment, to the location of the fire. Search and rescue is impacted by large areas and accessibility concerns. Additionally, because of delays in access, firefighters are likely to encounter a high volume of fire which will necessitate a supply chain to equip ongoing suppression efforts. A single alarm response to a high-rise building minimally requires 43 responders, consisting of 36 firefighters, 1 incident commander, and 6 officers. 32

263 Fire Department EMS Operations In recent years, the provision of emergency medical services has progressed from an amenity to a citizen-required service. More than 90% of career and combination fire departments provide some form of emergency medical care, making fire departments the largest group of prehospital EMS providers in North America. In many fire departments that deliver prehospital care, EMS calls can equate to over 75% of total call volume. There are six main components of an EMS incident from start to finish. 42 These are (1) detection of the incident, (2) reporting of the incident to a center, (3) response to the incident by the appropriate emergency resources, (4) on scene care by emergency response personnel, (5) care by emergency personnel while in transit to a medical care facility, and (6) transfer of the patient from emergency response personnel to the medical care facility. Not all EMS events will necessitate all six components, as when a patient refuses treatment, or is treated at the scene and not transported. In an analysis of data from over 300 fire departments in the United States, first responder units, which are typically fire engines, arrived prior to ambulances approximately 80% of the time. 43 This is likely due to the fact that fire stations housing first responder units, which are equipped and staffed with dual-role firefighter/emergency medical service technicians and supplies, are more centrally located and are able to effect a quicker response and provide life-saving procedures in advance of an ambulance. This reinforces why it is in the best interest of the public good for the fire department to provide EMS transport as well as first response. The benefit of supporting EMS transport within fire department operations is that fire departments are already geared towards rapid response and rapid intervention. Strategically located stations and personnel are positioned to deliver time critical response and effective fire suppression and are therefore equally situated to provide effective response to time critical requests for EMS service. Both fire suppression and EMS response are required by industry standards to have adequate personnel and resources operating on scene within 4 minutes. In both fire suppression and EMS incidents, time is directly related to the amount of damage, either to the structure or the patient. When ambulance response is prolonged, a patient will be further delayed in reaching a medical facility to receive definitive care. This is especially dangerous for incidents of chest pain, stroke, 42 The Star of Life, designated by Leo R. Schwartz, Chief of EMS Branch, National Highway Traffic Safety Administration (NHTSA) in Moore-Merrell, L. et al. (2010) Report on Residential EMS Field Experiments, Fire Fighter Safety and Deployment Study; Washington, DC, September

264 and survivable cardiac arrest. Many times, patients experiencing symptoms associated with these events may not recognize the onset indicators and immediately call for assistance Acute Coronary Syndrome (ACS), or heart attack, is the number one leading cause of death in the United States. Experts agree that an ACS event should receive definitive care from a hospital within one hour of onset of symptoms. One study found that definitive care for ACS within one hour of onset improves survivability by 50% and 23% if definitive care was given within 3 hours. 48 Strokes, which are the number three cause of death in the U.S., as well as a leading cause of disability, also benefit from expedient treatment in definitive care. Ischemic stroke, which is a stroke caused from a blood clot, can be effectively treated if definitive care is received within 3 to 4.5 hours 49 of onset of symptoms. The sooner a patient receives definitive treatment from onset of symptoms, the less likely a patient is to suffer disability from this type of stroke. However, it is important to emphasize that before the time critical treatment can be administered to the patient in the hospital, there is a time intensive assessment that must be performed to ensure the patient is qualified to receive the treatment. The current benchmark for an ischemic stroke patient door to needle 50 is less than or equal to 60 minutes. However, Steps Against Recurrent Stroke (STARS) registry shows that the median door to needle time is 96 minutes or 1 hour and 36 minutes. 51 In two-tiered EMS systems that deploy with sufficient resources, there is an increased likelihood that a patient will receive an ambulance and a first responding fire apparatus in not only a timely manner, but also frequently at the same, or close to the same time. This is extremely beneficial to the patient as most EMS responses, particularly the previously mentioned conditions, are labor intensive. Patients suffering from ACS should not perform any form of exertion as to minimize any damage that is occurring. Patients suffering from strokes are frequently unable to exert due to physical disabilities caused by the incident. An adequately sized crew is able to provide simultaneous interventions while assessment is being performed, thereby reducing the on-scene 44 American Heart Association, Heart Disease and Stroke Statistics-2005 update, Dallas, TX: AHA Time from Symptom Onset to treatment and outcomes after thrombolytic therapy. Newby LK, et al. J Am Coll Cardiol. 1996:27: An International Perspective on the Time to Treatment of Acute Myocardial Infarction. Dracup, K. et al. J Nurs Scholarsh 2003;35: Prehospital and In-hospital Delays in Acute Stroke Care. Evanson, KR, et al. Neuroepidemiology 2001;20: Association of patient delays with symptoms, cardiac enzymes, and outcomes in acute myocardial infarction. Rawles, JM. Et al. Eur Heart J. 1990; 11: Thrombolysis with Alteplase 3 to 4.5 Hours after Acute Ischemic Stroke. Hacke, W. et al. N Engl J Med. 2008;359: Door to Needle is an industry specific term that refers to the time the patient entered the emergency department to the time the received the treatment. A drug named recombinant tissue plasminogen activator (rt-pa) is utilized to dissolve the thrombosis causing the stroke. Current FDA approvals limit this drug s use to hours from initial symptoms and require a CT scan and labs before administration. 51 Improving Door-to-Needle Times in Acute Ischemic Stroke: The Design and Rational for the American Heart Association/American Stroke Association s Target: Stroke Initiative. Fonarow, Gregg, et al. Stroke 2011;42:

265 time. Following completion of critical tasks, the crew can then facilitate a safe removal of the patient to the ambulance and minimize the risk of injury to patient and provider. 52 One of the most labor intensive and time critical requests for EMS response is cardiac arrest, which globally affects out of every 100,000 people. Traditionally, the American Heart Association (AHA) taught a method of cardiac resuscitation that involved single rescuer performance of prioritized action. 53 However, there was a gap between instruction and practice which led to confusion and may have potentially reduced survival. In reality, providers respond and function in teams larger than two. The AHA s guidelines for cardiac resuscitation focus on a team-centric approach. Evidencebased research suggests that the manner in which CPR was being performed was inherently inefficient and only provided 10-30% of the normal blood flow to the heart and 30-40% to the brain This was linked to provider fatigue from administering chest compressions, and as such, these studies indicate that providers should be rotated to ensure effective depth and rhythm of chest compressions. Consensus documents from the AHA recommend that providers should rotate with every two-minute cycle of CPR. It is also recommended that requests for EMS service for cardiac arrest also have a team leader to organize priorities and direct resources as they arrive or are needed. The team leader would also be responsible for identifying symptoms of fatigue and making appropriate assignment adjustments to ensure maximally efficient CPR. Although the AHA and other researchers have not identified what an optimally sized crew for effective team-centric CPR should be, some consensus literature from AHA has mentioned that five providers were best suited to perform resuscitation. However, providers may be required to perform multiple tasks. Industry best practices, through the guidance of Medical Directors, have suggested six providers would be most successful in minimizing confusion and redundancy. An EMS crew consisting of six personnel would require four personnel arriving with the first responding fire apparatus and two with the ambulance. 56 For an all-als system, two of the six should be Paramedics, with a minimum of one assigned to each of the responding apparatus. Some ALS systems require two Paramedics on the ambulance and a minimum of one on the first responding fire apparatus. However, these deployment options are determined by State directive 52 Moore-Merrell, L. et al. (2010) Report on Residential EMS Field Experiments, Fire Fighter Safety and Deployment Study; Washington, DC, September Highlights of the 2010 American Heart Association Guidelines for CPR and ECC 54 Determinants of Blood Flow during Cardiac Resuscitation in Dogs. Halperin, HR et al. Circulation 1986;73: Increased Cortical Cerebral Blood Flow with LUCAS, a New Device for Mechanical Chest Compressions Compared to Standard External Compressions during Experimental Cardiopulmonary Resuscitation. Rubertson S, et al. Resuscitation. 2005;65: NFPA 1917: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments 35

266 or Medical Director s discretion. Regardless of the make-up of the EMS certification level of the providers on scene, an ALS integrated cardiac arrest response should provide for the following: a lead provider, an airway manager, two providers to interchangeably deliver chest compressions, a provider to establish an intravenous medication line and administer medications, and a provider to operate the monitor. 36

267 Fire Department Deployment Before discussing the staffing and deployment analysis of St. Catharines Fire and Emergency Services, it is imperative to understand the intricacies of distribution and concentration. The Importance of Adequate Resources: Distribution Distribution involves locating geographically distributed, ideal first-due resources for all-risk initial intervention. Distribution describes first due arrival. Station locations are needed to assure rapid deployment for optimal response to routine emergencies within the response jurisdiction. Distribution can be evaluated by the percentage of the jurisdiction covered by the first-due units within adopted public policy service level objectives. 57 In this case, distribution is measured by the percentage of roads that are covered from each fire station within 4- and 8- minute travel times to adhere to NFPA 1710 standards. Distribution study requires geographical analysis of first due resources. Distribution measures may include: 58 Population per first-due company Area served per first-due company (square miles) Number of total road miles per first-due company (miles) Dwelling unit square footage per first-due company Maximum travel time in each first-due company s protection area Catchment areas (4-minute road response from all fire stations) to determine gap areas and overlaps of first-due resources Areas outside of actual performance 1. Population not served 2. Area not served (square miles) 3. Road miles not served (miles) 4. Dwelling unit square footage not served 57 Commission on Fire Accreditation International, 5 th Edition Page Commission on Fire Accreditation International, 5 th Edition Page

268 First-due unit arrival times (Engine, Truck, ALS unit, etc.) A major item to be considered in the distribution of resources is travel time. It should be a matter of public policy that the distribution of fire stations in the community is based on the element of travel time and the response goal. Travel time should be periodically sampled and analyzed to determine whether or not the fire department is achieving a reasonable response performance to handle emergencies. 59 Evaluating a small number of incidents for response time performance also does not reflect the true performance of the department. Analyzing tens of thousands of incidents measured over 3-5 years will provide a more accurate assessment of the delivery system performance. Completing the same analysis over a period of time will allow for trend analysis as well min 4 min 4 min 2 min 4 min m4min 2 min Figure 5: Normal Distribution Model for an Initial 4-Minute Response Area. 61 As depicted in the above figure, fire stations and emergency resources should be distributed throughout a community so that citizens receive equitable coverage and protection. However, there are additional points of concern when modeling a response district such as road network, traffic patterns, and building occupancies. 59 Commission on Fire Accreditation International, 5 th Edition Page Commission on Fire Accreditation International, 5 th Edition Page Derived from Commission on Fire Accreditation International, 5 th Edition Page 53 38

269 Distribution strives for an equitable level of outcome: everyone in the community is within the same distance from a fire station. Distribution is based on the probability that all areas experience equal service demands, but not necessarily the same risk or consequences as those demands for service in other areas. For example, suburban communities in a jurisdiction may have the same service demand as an industrial factory area, but the level of risk is very different. This can have an impact on fire station locations as placement would probably put the stations near high risk areas to provide shorter travel times. Additionally, EMS response times based on medical emergencies will drive equal distribution in the community and negate distribution based on risk, as the risk is equal. First unit arrival times are the best measure of distribution. It should be noted that if an area experiences fire unit arrival times outside the adopted performance measure, in this case 4- minute travel time per NFPA 1710, it does not necessarily mean it has a distribution issue. 62 Other issues occur such as reliability, call processing times and turnout times, and traffic which can affect the overall performance of response times. An effective response force for a fire department is impacted not only by the spacing of fire stations but also by the type and amount of apparatus and personnel staffing the stations. To assemble the necessary apparatus, personnel, and equipment within the prescribed timeframe, all must be close enough to travel to the incident, if available upon dispatch. The placement and spacing of specialty equipment is always challenging. 63 Specialty units tend to be trucks, rescue units, hazmat, or Battalion personnel. Most often there are less of these types of equipment and personnel compared to the first-line response of engines and medic units. Selecting where to put specialty units requires extensive examination of current and future operations within the fire department and a set goal of response time objectives for all-hazards emergencies within a jurisdiction. Distribution vs. Concentration Major fires have a significant impact on the resource allocation of any fire department. The dilemma for any fire department is staffing for routine emergencies and also being prepared for the fire or emergency of maximum effort. This balancing of distribution and concentration staffing needs is one that almost all fire agencies face on an ongoing basis. The art in concentration spacing is to strike a balance with respect as to how much overlap there should be between station areas. Some overlap is necessary to maintain good response times and to provide back-up for distribution when the first-due unit is unavailable for service or deployed on a prior emergency. 62 Commission on Fire Accreditation International, 5 th Edition Page Commission on Fire Accreditation International, 5 th Edition Page 62 39

270 Concentration pushes and pulls distribution. Each agency, after risk assessment and critical task analysis, must be able to quantify and articulate why its resource allocation methodology meets the governing body s adopted policies for initial effective intervention on both a first-due and multiple-unit basis Commission on Fire Accreditation International, 5 th Edition Pages

271 Mapping Analysis of the St. Catharines Fire and Emergency Services In creating this document, it was important to ascertain where stations were located and if they were located to provide fair and equitable coverage to the citizens. In order to make this assessment, the IAFF created maps of the Department s response area and plotted the fire stations. Computer modeling was then used to determine the distance apparatus could travel in different time frames. Travel times were modeled using ESRI ArcGIS version Fire stations were identified on Geographic Information System (GIS) maps as starting points with vehicles traveling at posted road speeds. When generating the maps a number of assumptions needed to be addressed prior to drawing conclusions from the analysis. These assumptions are as follows: Modeled travel speeds are based on reasonable and prudent historical traffic speeds using the Wednesday at 5:00 PM. Actual response speeds may be slower, and the associated travel times greater, with any unpredictable impedances including, but not limited to: Traffic Incidents: Collisions and vehicle breakdowns causing lane blockages and driver distractions. Work Zones: Construction and maintenance activity that can cause added travel time in locations and times where congestion is not normally present. Weather: Reduced visibility--road surface problems and uncertain waiting conditions result in extra travel time and altered trip patterns. Special Events: Demand may change due to identifiable and predictable causes. Traffic Control Devices: Poorly timed or inoperable traffic signals, railroad grade crossings, speed control systems, and traveler information signs contribute to irregularities in travel time. Inadequate Road or Transit Capacity: The interaction of capacity problems with the aforementioned sources causes travel time to expand much faster than demand. 65 In addition, it is reasonable to suggest that because larger emergency vehicles are generally more cumbersome and require greater skill to maneuver, their response may be more negatively affected by their weight, size, and in some cases, inability to travel narrow surface streets. 65 David Shrank and Tim Lomax, The 2003 Urban Mobility Report, (Illinois Transportation Institute, Illinois A&M University: September 2003). 41

272 As discussed, computer modeling only considers travel time of apparatus. Decision makers should understand that once apparatus and personnel arrive on the incident scene there are other essential tasks that must be completed which require additional time before access, rescue, and suppression can take place. Tasks such as establishing a water supply, forcible entry (access), and deployment of an attack line are not considered in the computer modeling. Other additional factors also include: The time from arrival of the apparatus to the onset of interior fire operations (access interval) must be considered when analyzing response system capabilities. o The access interval is dependent upon factors such as distance from the apparatus to the task location and the elevation of the incident and locked doors or security bars which must be breached. o Impediments like these may add to the delay between discovery of a fire and the initiation of an actual fire attack. The reliability of a community s hydrant system to supply water to fire apparatus. Weather conditions 42

273 Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 Open 192 Linwell Street Pumper 2 4 FF Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 Cross-Staffed Station 5 Open 149 Martindale Pumper 5 4 FF Road Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pumper 6 4 FF Table 6: Current Fire Station Locations and Staffing. The above table displays where apparatus are housed and how they are staffed. SCFES also maintains several pieces of reserve and specialty units not listed. 43

274 Map 1: Current Fire Station Locations and 2011 Population Density. Map 1 depicts the Department s response boundary for the City of St. Catharines, fire station locations, and the 2011 population density. All fire stations are positioned around areas with a high population density, providing the Department the ability to quickly respond to highy populated areas. 44

275 Map 2: Concentration of Emergency Response Incidents and Fire Station Locations in St. Catharines. Map 2 depicts the concentration levels of emergency incidents that occurred between 2013 and The highest density of incidents in the City of St. Catharines are located around Fire Station 1. Additional resources should be positioned at fire stations that experience a high density of incidents to ensure safe and effective fire suppression and EMS response. 45

276 Map 3: 2-Minute & 24-Second Response & Emergency 2 In/2 Out Operations, Current Staffing and Deployment. Map 3 identifies those roads where the Department s apparatus can reach within a 2-minute and 24- second travel time and assemble a minimum of four personnel on scene. Currently, the Department is capable of assembling a minimum of 4 firefighters on 16.0% of city roads within 2 minutes and 24 seconds. 46

277 Map 4: 4-Minute Response and Emergency 2 In/2 Out Operations, Current Staffing and Deployment. Map 4 identifies those roads where the Department s apparatus can reach within a 4-minute travel time and assemble a minimum of four personnel on scene. Currently, the Department is capable of assembling a minimum of 4 firefighters on 46.6% of city roads within 4 minutes. 47

278 Map 5: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Current Staffing and Deployment. Map 5 identifies those roads where a minimum of 15 firefighters can assemble within 8 minutes of travel. Currently, companies are capable of assembling a minimum of 15 firefighters within 8 minutes on 40.8% of City roads. Due to daily staffing levels, the Department is unable to assemble the required numbers of personnel for a medium- or high-hazard incident. 48

279 Proposed Emergency Response Capabilities: Scenario 1 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 1 depicts the Department s response capabilities if Ladder 4 is consistently staffed with 4 firefighters and is moved to Fire Station 1. Station Name Open/Closed Station Address Apparatus Staffing Car 4 1 Platoon Chief Station 1 Open 64 Geneva Street Pumper 1 4 FF Ladder 4 4 FF Rescue 1 2 FF Station 2 Open 192 Linwell Street Pumper 2 4 FF Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Station 5 Open 149 Martindale Pumper 5 4 FF Road Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pumper 6 4 FF Table 7: Scenario 1, Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed based if Scenario 1 were implemented. 49

280 Map 6: 2-Minute, 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 1. Map 6 identifies those roads where the Department s apparatus would be able to reach within a 2-minute and 24-second travel time and assemble a minimum of four personnel on scene if Ladder 4 was to be staffed with 4 personnel and moved to Station 1. In this scenario, the Department would be likely be capable of assembling a minimum of 4 firefighters on 16.0% of roads. This equates to no change from current capabilities. 50

281 Map 7: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 1. Map 7 identifies those roads where the Department s apparatus would be able to reach within a 4-minute travel time and assemble a minimum of 4 personnel on scene if Ladder 4 were to be staffed with 4 firefighters and moved to Station 1. In this scenario, the Department would likely be capable of assembling a minimum of 4 firefighters on 46.6% of city roads. This equates to no change from current capabilities. 51

282 Map 8: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 1. Map 8 identifies those roads where a minimum of 15 firefighters would likely be able to assemble within 8 minutes of travel if Ladder 4 were staffed with 4 firefighters and moved to Station 1. In this scenario, the Department would likely be capable of assembling a minimum of 15 firefighters within 8 minutes on 50.8% of City roads. This equates to a 24.5% increase over current capabilities. 52

283 Map 9: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario 1. Map 9 identifies those roads where a minimum of 26 firefighters 66 can assemble within 8 minutes of travel if Ladder 4 was staffed with 4 firefighters and moved to Station 1. In this scenario, the Department would likely be capable of assembling a minimum of 26 firefighters within 8 minutes on 2.2% of City roads. Due to the proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a high-hazard incident. 66 NFPA also requires the establishment of an initial medical care component consisting of least two members capable of providing immediate on scene emergency medical support and transport that provides rapid access to civilians or members potential needing medical treatment. If this service is provided by the fire department, the requirement for a medium-hazard structure fire would be 28 firefighters within 8 minutes. Where this level of emergency medical care is provided by outside agencies or organizations, these agencies and organizations shall be included in the deployment plan and meet these requirements. 53

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285 Proposed Emergency Response Capabilities: Scenario 2 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 2 depicts the Department s response capabilities if Fire Station 2 and Pumper 2 are closed and Ladder 4 housed at Fire Station 4 is staffed daily with 4 firefighters. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 CLOSED 192 Linwell Street N/A N/A Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 4 FF Station 5 Open 149 Martindale Pumper 5 4 FF Road Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pumper 6 4 FF Table 8: Scenario 2, Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed if Scenario 2 was implemented. 55

286 Map 10: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 2. Map 10 identifies those roads where the Department s apparatus would be capable of reaching within a 2-minute and 24- second travel time and assemble a minimum of 4 personnel on scene if Station 2 was to be closed and Ladder 4 was to be staffed with 4 firefighters. In this scenario, the Department would likely be capable of responding on 13.4% of City roads within 2-minute and 24-seconds. This equates to an 18.6% reduction in coverage compared to the Department s current response capabilities. 56

287 Map 11: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 2. Map 11 identifies those roads where the Department s apparatus would be able to within 4 minutes and assemble a minimum of 4 personnel on scene if Station 2 was closed and Ladder 4 staffed with 4 firefighters. In this scenario, the Department would likely be able to assemble a minimum of 4 firefighters on 39.3% of City roads. This equates to a 15.6% reduction in coverage compared to the Department s current response capabilities. 57

288 Map 12: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 2. Map 12 identifies those roads where a minimum of 15 firefighters could be assembled within 8 minutes if Station 2 was closed and Ladder 4 was staffed with 4 personnel. In this scenario, the Department would likely be capable of assembling a minimum of 15 firefighters within 8 minutes on 34.8% of City roads. This equates to a 14.7% reduction in coverage compared to the Department s current response capabilities. Due to the proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a medium- or high-hazard incident. 58

289 Proposed Emergency Response Capabilities: Scenario 3 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 3 depicts the Department s response capabilities if Fire Station 2 and Pumper 2 are closed. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 CLOSED 192 Linwell Street N/A N/A Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 Cross-Staffed Station 5 Open 149 Martindale Pumper 5 4 FF Road Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pumper 6 4 FF Table 9: Scenario 3 Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed if Scenario 3 were implemented. 59

290 Map 13: 2-Minute, 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 3. Map 13 identifies those roads where the Department s apparatus could reach within a 2-minute and 24-second travel time and assemble a minimum of four personnel on scene if Station 2 was to be closed. In this scenario, the Department would likely be capable of assembling a minimum of 4 firefighters on 13.4% of City roads. This equates to an 18.6% reduction in coverage compared to the Department s current response capabilities. 60

291 Map 14: 4-Minute Response and Emergency 2 In/2 Out, Scenario 3. Map 14 identifies those roads where the Department s apparatus would be able to reach within a 4-minute travel time and assemble a minimum of four personnel on scene f Station 2 was to be closed. In this scenario the Department would likely be capable of assembling a minimum of 4 firefighters 39.3% of City roads. This equates to a 15.6% reduction in coverage compared to the Department s current response capabilities. 61

292 Map 15: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 3. Map 15 identifies those roads where a minimum of 15 firefighters could assemble within 8 minutes of travel. In this scenario, companies would likely be capable of assembling a minimum of 15 firefighters within 8 minutes on 29.6% of City roads. This equates to a 26.7% reduction in coverage compared to the Department s current response capabilities. Due to proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a medium- or high-hazard incident. 62

293 Proposed Emergency Response Capabilities- Scenario 4 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 4 depicts the Department s response capabilities if Fire Station 2 and Pumper 2 are closed and Fire Station 6 is relocated to the intersection of Linwell Road and Devon Road. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 CLOSED 192 Linwell Street N/A N/A Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 Cross-Staffed Station 5 Station 6 Open Open 149 Martindale Road Linwell Road and Devon Road Pumper 5 Ladder 5 Pumper 6 4 FF Cross-Staffed 4 FF Table 10: Scenario 4, Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed based if Scenario 4 was implemented. 63

294 Map 16: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 4. Map 16 identifies those roads where the Department s apparatus could reach within a 2-minute, 24-second travel time and assemble a minimum of four personnel on scene if Station 2 was closed and Station 6 was relocated. In this scenario, the Department would likely be capable of responding on 13.4% of City roads. This equates to an 18.6% reduction in coverage compared to the Department s current response capabilities. 64

295 Map 17: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 4. Map 17 identifies those roads where the Department s apparatus could reach within a 4-minute travel time and assemble a minimum of four personnel on scene if Station 2 was closed and Station 6 was relocated. In this scenario, the Department would likely be capable of responding on 39.1% of city roads. This equates to a 16.1% reduction in coverage compared to the Department s current response capabilities. 65

296 Map 18: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 4. Map 18 identifies those roads where the Department s apparatus could reach within an 8-minute travel time and assemble a minimum of 15 personnel on scene if Station 2 was closed and Station 6 was relocated. In this scenario, the Department would likely be capable of responding on 29.9% of city roads, which equates to a 26.7% reduction in coverage compared to the Department s current response capabilities. Due to proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a medium- or high-hazard incident. 66

297 Proposed Emergency Response Capabilities- Scenario 5 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 5 depicts the Department s response capabilities if Fire Station 2 and Pumper 2 are closed and Fire Station 1 is relocated to the intersection of Lake Street and Carlton Street. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open Car 4 1 Platoon Chief Lake Street and Pump 1 4 FF Carlton Street Rescue 1 2 FF Station 2 CLOSED 192 Linwell Street N/A N/A Station 3 Open 285 Pelham Road Pump 3 4 FF Station 4 Open 427 Merritt Street Pump 4 4 FF Ladder 4 Cross-Staffed Station 5 Open 149 Martindale Pump 5 4 FF Road Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pump 6 4 FF Table 11: Scenario 5 Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed if Scenario 5 was implemented. 67

298 Map 19: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 5. Map 19 identifies those roads where the Department s apparatus could reach within a 2-minute, 24-second travel time and assemble a minimum of four personnel on scene if Station 2 was closed and Station 1 was relocated. In this scenario, the Department would likely be capable of responding on 15.6% city roads. This equates to a 2.5% reduction in coverage compared to the Department s current response capabilities. 68

299 Map 20: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 5. Map 20 identifies those roads where the Department s apparatus could reach within a 2-minute, 24-second travel time and assemble a minimum of four personnel on scene if Station 2 was closed and Station 1 was relocated. In this scenario, the Department would likely be capable of responding on 42.5% of city roads. This equates to an 8.8% reduction in coverage compared to the Department s current response capabilities. 69

300 Map 21: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 5. Map 21 identifies those roads where the Department s apparatus could reach within an 8-minute travel time and assemble a minimum of 15 personnel on scene if Station 2 was closed and Station 1 was relocated. In this scenario, the Department would likely be capable of responding on 23.2% of City roads. This equates to a 43.1% reduction in coverage compared to the Department s current response capabilities. Due to proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a medium- or high0hazard incident. 70

301 Proposed Emergency Response Capabilities- Scenario 6 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 6 depicts the Department s response capabilities if a new fire station was added near the intersection of Welland Avenue and Neilson Avenue and housed with Pumper 7 and staffed with 4 firefighters. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 Open 192 Linwell Street Pumper 2 4 FF Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 Cross-Staffed Station 5 Open 149 Martindale Road Pumper 5 4 FF Ladder 5 Cross-Staffed Station 6 Open 465 Scott Street Pumper 6 4 FF Station 7 Open Welland Avenue and Neilson Avenue Pumper 7 4 FF Table 12: Scenario 6, Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed if Scenario 6 was implemented. 71

302 Map 22: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 6. Map 22 identifies those roads where the Department s apparatus could reach within a 2-minute, 24-second travel time and assemble a minimum of four personnel on scene an additional station was constructed near the intersection of Welland and Neilson Avenues. In this scenario, the Department would likely be capable of responding on 17.6% of City roads within 2-minute and 24-seconds of travel time. This equates to a 1.0% increase in coverage compared to the Department s current response capabilities. 72

303 Map 23: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 6. Map 23 identifies those roads where the Department s apparatus could reach within 4-minute travel time and assemble a minimum of four personnel on scene if a new station was added near the intersection of Welland and Neilson Avenues and staffed with 4 personnel. In this scenario, the Department would likely be capable of responding on 50.5% of City roads, which equates to an 8.4% increase in coverage compared to the Department s current response capabilities. 73

304 Map 24: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 6. Map 24 identifies those roads where a minimum of 15 firefighters could assemble within 8 minutes of travel. In this scenario, companies would likely be capable of assembling a minimum of 15 firefighters within 8 minutes on 47.0% of City roads. This equates to a 15.2% increase in coverage compared to the Department s current response capabilities. 74

305 Map 25: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario 6. Map 25 identifies those roads where a minimum of 26 firefighters 67 could assemble within 8 minutes of travel. In this scenario, companies would be capable of assembling a minimum of 26 firefighters within 8 minutes on 2.2% of City roads. Due to proposed daily staffing levels, the Department would be unable to assemble the required numbers of personnel for a high-hazard incident. 67 NFPA also requires the establishment of an initial medical care component consisting of least two members capable of providing immediate on scene emergency medical support and transport that provides rapid access to civilians or members potential needing medical treatment. If this service is provided by the fire department, the requirement for a medium-hazard structure fire would be 28 firefighters within 8 minutes. Where this level of emergency medical care is provided by outside agencies or organizations, these agencies and organizations shall be included in the deployment plan and meet these requirements. 75

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307 Proposed Emergency Response Capabilities- Scenario 7 For this portion of the study, an alternate staffing and deployment scenario was examined. Scenario 7 depicts the Department s response capabilities if a new fire station is added at the intersection of Linwell Road and Niagara Street and deployed a Pumper 7 staffed with 4 firefighters. Scenario 7 also includes the relocation of Fire Station 2 to the intersection of Lake Street and Scott Street and the relocation of Fire Station 6 to the intersection of Grantham Avenue and Facer Street. Station Name Open/Closed Station Address Apparatus Staffing Station 1 Open 64 Geneva Street Car 4 Pumper 1 Rescue 1 1 Platoon Chief 4 FF 2 FF Station 2 Open Lake Street and Scott Street Pumper 2 4 FF Station 3 Open 285 Pelham Road Pumper 3 4 FF Station 4 Open 427 Merritt Street Pumper 4 4 FF Ladder 4 Cross-Staffed Station 5 Station 6 Station 7 Open Open Open 149 Martindale Road Grantham Avenue and Facer Street Linwell Road and Niagara Street Pumper 5 Ladder 5 Pumper 6 Pumper 7 4 FF Cross-Staffed 4 FF 4 FF Table 13: Scenario 7 Proposed Fire Station Locations and Staffing. The above table displays where apparatus would be housed and staffed if Scenario 7 was implemented. 77

308 Map 26: 2-Minute & 24-Second Response and Emergency 2 In/2 Out Operations, Scenario 7. Map 26 identifies those roads where the Department s apparatus could reach within a 2-minute, 24-second travel time and assemble a minimum of four personnel on scene if a new station was constructed and Stations 2 and 6 were relocated. In this scenario, the Department would likely be capable of responding on 19.9% of City roads within 2- minutes and 24-seconds of travel time. This equates to a 2.4% increase in coverage compared to the Department s current response capabilities. 78

309 Map 27: 4-Minute Response and Emergency 2 In/2 Out Operations, Scenario 7. Map 27 identifies those roads where the Department s apparatus could reach within 4-minute travel time and assemble a minimum of four personnel on scene if a new station was added and Stations 2 and 6 were relocated. In this scenario, the Department would likely be capable of responding on 53.9% of City roads. This equates to a 15.6% increase in coverage compared to the Department s current response capabilities. 79

310 Map 28: NFPA 1710 Low-Hazard Alarm Compliance Response Capabilities, Minimum of 15 Firefighters within 8 Minutes, Scenario 7. Map 28 identifies those roads where a minimum of 15 firefighters could assemble within 8 minutes of travel. In this scenario, the Department would be likely be capable of assembling a minimum of 15 firefighters within 8 minutes on 48.3% of City roads. This equates to an 18.4% increase in coverage compared to the Department s current response capabilities. 80

311 Map 29: NFPA 1710 Medium-Hazard Initial Full Alarm Response Capabilities, Minimum of 26 Firefighters within 8 Minutes, Scenario 7. Map 29 identifies those roads where a minimum of 26 firefighters 68 could assemble within 8 minutes of travel. In this scenario, companies would be capable of assembling a minimum of 26 firefighters within 8 minutes on 3.9% of City roads. Due to proposed staffing levels, the Department would be unable to assemble the required numbers of personnel for a high-hazard structure fire. 68 NFPA also requires the establishment of an initial medical care component consisting of least two members capable of providing immediate on scene emergency medical support and transport that provides rapid access to civilians or members potential needing medical treatment. If this service is provided by the fire department, the requirement for a medium-hazard structure fire would be 28 firefighters within 8 minutes. Where this level of emergency medical care is provided by outside agencies or organizations, these agencies and organizations shall be included in the deployment plan and meet these requirements. 81

312 2-minute and 24-second "2 In/2 Out" 4-Minute "2 In/2 Out" 8-Minute NFPA Low-Hazard Full Alarm 8-Minute NFPA Medium- Hazard Full Alarm Existing Deployment Capabilities Scenario 1 Deployment Changes 69 Scenario 2 Deployment Changes 70 Scenario 3 Deployment Changes 71 Scenario 4 Deployment Changes 72 Scenario 5 Deployment Changes 73 Scenario 6 Deployment Changes 74 Scenario 7 Deployment Changes % 46.6% 40.8% 0.0% 16.0% 46.6% 50.8% 2.2% 13.4% 39.3% 34.8% 0.0% 13.4% 39.3% 29.6% 0.0% 13.4% 39.1% 29.9% 0.0% 15.6% 42.5% 23.2% 0.0% 17.6% 50.5% 47.0% 2.2% 19.9% 53.9% 48.3% 3.9% Table 14: Response Scenarios and Coverage. Table 14 displays the percentage of City roads covered under the current and proposed staffing and deployment scenarios. 69 Six Stations Scenario: Existing six fire stations, Aerial 4 staffed with 4 firefighters and housed at Fire Station Five Station Scenario: Fire Station 2 closed, Ladder 4 staffed with 4 firefighters and housed at Fire Station Five Station Scenario: Fire Station 2 closed, daily staffing reduced to 23 per platoon. 72 Five Station Scenario: Fire Station 2 closed, and Fire Station 6 relocated to the intersection of Linwell Road and Devon Road. 73 Five Station Scenario: Fire Station 2 closed, and Fire Station 1 relocated to the intersection of Lake Street and Carlton Street. 74 Seven Station Scenario: A new fire station at the intersection of Welland Avenue and Neilson Avenue and housed with Pumper 7 staffed with 4 firefighters. 75 Seven Station Scenario: A new fire station at the intersection of Linwell Road and Niagara Street and housed with Pumper 7 staffed with 4 firefighters, Fire Station 2 relocated to the intersection of Lake Street and Scott Street, and Fire Station 6 relocated to the intersection of Grantham Avenue and Facer Street. 82

313 Conclusion In conclusion, regardless of the type of response, fire suppression companies are not staffed in compliance with industry standards for safe, efficient, and effective response to fires or rescue situations. Under both current and proposed staffing and deployment scenarios, SCFES is not capable of meeting industry standards. Additionally, the City Property Manager has confirmed that none of the proposed locations for new fire stations could be developed on, thus making scenarios 4-9 unattainable due to the lack of developable land. Any reduction of Department s resources will significantly restrict its ability to ensure the citizens of the City of St. Catharines are provided with safe and effective fire suppression and EMS response. While it is impossible to predict where most of a jurisdiction s fire and medical emergencies will occur, the St. Catharines Fire and Emergency Services should examine where emergencies have typically occurred in the past and make efforts to ensure these areas continue to enjoy the same level of coverage, while adjusting resources and deployment as needed in an effort to achieve complete compliance with industry standards. Areas with accelerated development and population growth will require additional coverage in the future. Any projected increase in emergency response demands should also be considered before changes are implemented, focusing on associated hazard types and planned response assignments. As explained by the Commission on Fire Accreditation International, Inc. in its Creating and Evaluating Standards of Response Coverage for Fire Departments manual, If resources arrive too late or are understaffed, the emergency will continue to escalate What fire companies must do, if they are to save lives and limit property damage, is arrive within a short period of time with adequate resources to do the job. To control the fire before it reaches its maximum intensity requires geographic dispersion (distribution) of technical expertise and cost effective cluttering (concentration) of apparatus for maximum effectiveness against the greatest number and types of risks. Optimally, there needs to be a balance between both elements. The ramifications of low staffing levels, as they pertain to the loss of life and property within a community, are essential when considering a fire department s deployment configuration. A fire department should be designed to adequately respond to a number of emergencies occurring simultaneously in a manner that aims to minimize the loss of life and the loss of property that the fire department is charged to protect. Any proposed changes in staffing, deployment and station location should be made only after considering the historical location of calls, response times to specific target hazards, compliance with departmental Standard Operating Procedures, existing industry standards, including NFPA 1500 and NFPA Standard 1710, and the citizens expectation of receiving an adequate number of qualified personnel on appropriate apparatus within acceptable time frames to make a difference in their emergency. 83

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315 Appendix Performance Standards The National Fire Protection Association (NFPA) produced NFPA 1710 Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments. NFPA 1710 is the consensus standard for career firefighter deployment, including requirements for fire department arrival time, staffing levels, and fireground responsibilities. 76 Key Sections included in the 1710 Standard that are applicable to this assessment are: o The fire department organizational statement shall ensure that the fire department s emergency medical response capability includes personnel, equipment, and resources to deploy at the first responder level with AED or higher treatment level Operating Units. Fire company staffing requirements shall be based on minimum levels necessary for safe, effective, and efficient emergency operations & Fire companies, whose primary functions are to pump and deliver water and perform basic firefighting at fires, including search and rescue shall be staffed with a minimum of four on-duty personnel & Fire companies whose primary functions are to perform the variety of services associated with truck work, such as forcible entry, ventilation, search and rescue, aerial operations for water delivery and rescue, utility control, illumination, overhaul and salvage work shall be staffed with a minimum of four on-duty personnel. 76 NFPA 1710,

316 & o In jurisdictions with tactical hazards, high hazard occupancies, high incident frequencies, geographical restrictions, or other factors as identified by the AHJ 77, these companies shall be staffed with a minimum of five or six on-duty personnel o A fire company that deploys with quint apparatus designed to operate as either an engine company or a ladder company, shall be staffed as specified in o If the company is expected to perform multiple roles simultaneously, additional staffing, above the levels specified in 5.2.3, shall be provided to ensure that those operations can be performed as required o The fire department s fire suppression resources shall be deployed to provide for the arrival of an engine company within a 240-second travel time to 90 percent of the incidents o The fire department shall have the capability to deploy an initial full alarm assignment within a 480-second travel time to 90 percent of the incidents. 77 AHJ- Authority Having Jurisdiction 86

317 o The initial full alarm assignment to a structure fire in a typical 2000 ft 2 twostory single-family dwelling without basement and with no exposures shall provide for the following Assignment Incident Command Uninterrupted Water Supply Water Flow from Two Handlines Support for Handlines Victim Search and Rescue Team Ventilation Team Aerial Operator Initial Rapid Intervention Crew (IRIC) Required Minimum Personnel for Full Alarm Minimum Required Personnel 1 Officer 1 Pump Operator 4 Firefighters (2 for each line) 2 Firefighters (1 for each line) 2 Firefighters 2 Firefighters 1 Firefighters 2 Firefighters 14 Firefighters & 1 Scene Commander 87

318 The initial full alarm assignment to a structure fire in a typical open-air strip shopping center ranging from 13,000 ft 2 to 196,000 ft 2 (1203 m 2 to 18,209 m 2 ) in size And The initial full alarm assignment to a structure fire in a typical 1200 ft 2 (111 m 2 ) apartment within a three-story, garden-style apartment building shall provide for the following: Assignment Incident Command Uninterrupted Water Supply (2) Water Flow from Three Handlines Support for Handlines Victim Search and Rescue Teams Ladder/Ventilation Teams Aerial Operator Rapid Intervention Crew (RIC) EMS Transport Unit 78 Required Minimum Personnel for Full Alarm Minimum Required Personnel 1 Incident Commander 1 Incident Command Aide 2 Firefighters 6 Firefighters (2 for each line) 3 Firefighters (1 for each line) 4 Firefighters (2 per team) 4 Firefighters (2 per team 1 Firefighter 4 Firefighters 2 Firefighters 27 Firefighters 1 Incident Commander 78 The Standard further states, Where this level of emergency care is provided by outside agencies or organizations, these agencies and organizations shall be included in the department plan and meet these requirements. 88

319 Initial full alarm assignment to a fire in a building with the highest floor 75 ft. (23 m) above the lowest level of fire department vehicle access shall provide for the following: Assignment Required Personnel Incident Command 1 Incident Commander 1 Incident Command Aide Uninterrupted Water Supply 1 Building Fire Pump Observer 1 Fire Engine Operator Water Flow from Two Handlines on the Involved Floor 4 Firefighters (2 for each line) Water Flow from One Handline One Floor Above the Involved 2 Firefighters (1 for each line) Floor RIC Two Floors Below the Involved Floor 6 Firefighters Victim Search and Rescue Team 4 Firefighters Point of Entry/Oversight Fire Floor 1 Officer 1 Officer s Aide Point of Entry/Oversight Floor Above 1 Officer 1 Officer s Aide Evacuation Management Teams 4 Firefighters ( 2 per team) Elevator Management 1 Firefighter Lobby Operations Officer 1 Officer Trained Incident Safety Officer 1 Officer Staging Officer Two Floors Below Involved Floor 1 Officer Equipment Transport to Floor Below Involved Floor 2 Firefighters Firefighter Rehabilitation 2 Firefighters ( 1 must be ALS) Vertical Ventilation Crew 1 Officer 3 Firefighters External Base Operations 1 Officer 2 EMS ALS Transport Units 4 Firefighters 36 Firefighters Required Minimum Personnel for 1 Incident Commander Full Alarm 6 Officers 89

320 EMS staffing requirements shall be based on the minimum levels needed to provide patient care and member safety & Units that provide BLS (ALS re: ) transport shall be staffed and trained at the level prescribed by the state or provincial agency responsible for providing EMS licensing When provided, the fire department s EMS for providing ALS shall be deployed to provide for the arrival of an ALS company within a 480-second travel time to 90 percent of the incidents, provided a first responder with AED or BLS unit arrived in 240 seconds or less travel time as established in Chapter 4. 90

321

322 International Association of Fire Fighters 1750 New York Ave., NW, Washington, DC

323 APPENDIX E Suite Front Street West Fax Toronto, ON M5J 2L7 Canada STRUCTURAL CONDITION ASSESSMENT REPORT ST. CATHARINES TRAINING FIRE TOWER RENOWN ROAD, ST. CATHARINES, ONTARIO April 10, 2015 Prepared for: The Corporation of the City of St. Catharines City Hall, P.O. Box Church Street St. Catharines, ON L2R 7C2 Prepared by: Read Jones Christoffersen Ltd. Suite 500, 144 Front Street West Toronto, ON M5J 2L7 RJC # TOR Vancouver \ Victoria Nanaimo Calgary Edmonton Lethbridge Kitchener Kingston Toronto

324 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT RJC No.: TOR Page i Table of Contents Page Executive Summary ii 1.0 Introduction Purpose Scope of Work Cost Basis Site Visit and Project Personnel Document Review Building Structure System Description Observations and Concerns Noted Probable Cost of Repair/Replacement Facility Life Expectancy and Replacement Cost Limits of Liability 7 Appendix A Building Structure Photographs

325 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT RJC No.: TOR Page ii Executive Summary Read Jones Christoffersen Ltd. was engaged by Mr. Anthony Martuccio, P.Eng. on behalf of the Corporation of the City of St. Catharines to conduct a structural condition assessment of the fire training facility located on Renown Road adjacent to the Twelve Mile Creek in the City of St. Catharines, Ontario. Purpose The objective of this assessment was to review the major structural systems employed in the building, to determine if there are observable deficiencies in the building s structural systems, and to provide an opinion of associated remedial costs beyond normal maintenance which will be required over the next 10 years. Scope of Work In general, the scope of work included the review of prior reports and drawings (where made available), interviews with fire department and city staff familiar with the facility, a visual walkthrough review of the property, and the preparation of this report. Property Description The building referred to as the St. Catharines Fire Department Training Fire Tower consists of a 4 storey precast concrete and unit masonry block structure constructed circa the 1970 s. The gross floor area of the building is approximately 2,800 sq.ft. (260 sq.m.), including the two stairwells, but excluding the two roof terraces and single balcony at the third floor. The structural system of the building generally comprises of a modular precast concrete floor slab systems with cast-in-place concrete toppings supported by structural steel beams and load bearing reinforced masonry block walls. There are no interior finishes; however, the exterior block walls are painted. Findings The building structure is generally in fair condition; however, there is significant cracking of the suspended floor slabs throughout all levels of the building, localized deteriorated unit masonry at the exterior building walls, and notable deflection (sagging) of the third floor suspended slab above the area of the facility referred to as the Burn Room on the second floor. Repairs to cracking and spalled concrete and masonry block units were evident throughout the structure. The most apparent extent of repair was in the form of a cementicious parging installed on the underside of the floor slabs at crack locations. Most of the repairs do not appear to be structural in nature, but rather intended to act as a waterstop measure. Read Jones Christoffersen Ltd.

326 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT RJC No.: TOR Page iii Furthermore, the cementitious fireproofing on the soffit (underside) of the third floor slab (i.e. above the 2 nd floor Burn Room) was noted to be cracked and delaminating from the floor slab structure. It is currently in a state in which it is at risk of falling and should be removed prior to any further training exercises are undertaken in this area of the building. Summary of Probable Expenditures Prior to the commencement of this assignment, the threshold limit for remedial costs was set at $1,000 plus H.S.T. The remedial costs presented in this report have adhered to this threshold limitation unless the concern noted have code related implications; have life safety related implications; do not fall under the realm of regular maintenance; or, may be detrimental to the proper performance of the system if not addressed. All costs shown are in 2015 Canadian dollars. Based on our observations, as noted in the following table and report, we anticipate capital repair/replacement expenditures will be required over the next 10 years. ITEMS Immediate Repair Costs 1-2 Years 3-5 Years 6-10 Years Estimated Total Cost BUILDING STRUCTURE.1 Replace Burn Room $18, $18, Fireproofing Insulation.2 Sub Frame Third Floor Slab --- $18, $18, above Burn Room.3 Repair Masonry Block --- $50, $50, $100, Walls.4 Repair Modular Block Floor --- $50, $50, $100, Slabs.5 Replace Roofing System --- $35, $35, Sub-Total $18, $147, $100, $271, The facility is estimated to be approximately 40 years old based on historic information available on line. The normal life expectancy for an unprotected structure of this construction that is regularly exposed to extreme temperature and moisture conditions is anticipated to be approximately 40 to 50 years, after which time demolition and reconstruction would likely be required. The anticipated costs to demolish and reconstruct a new facility of similar size and construction on the existing land would be in the order of $850, plus HST in 2015 Canadian Dollars, excluding soft costs such engineering and design fees, material testing costs, and permitting fees. Read Jones Christoffersen Ltd.

327 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT RJC No.: TOR Page iv No attempts have been, as part of this assessment, to determine if there is moisture related deterioration such as mould, mildew etc., within the concealed space as this was beyond the scope of this assignment. We recommend an independent environmental consultant be retained to confirm with better certainty if internal damage has occurred, determine its extent and provided suggested remediation alternative. This service has not been included as part of this assignment. Read Jones Christoffersen Ltd.

328 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 1 RJC No.: TOR Introduction Read Jones Christoffersen Ltd. was engaged by Mr. Anthony Martuccio, P.Eng. on behalf of the Corporation of the City of St. Catharines to conduct a structural condition assessment of the fire training facility located on Renown Road in the City of St. Catharines, Ontario. The building referred to herein as the Renown Road Fire Training Facility consists of a 4 storey precast concrete and unit masonry block structure constructed circa the 1970 s. The gross floor area of the building is approximately 2,800 sq.ft. (260 sq.m.), including the two stairwells, but excluding the two roof terraces and single balcony at the third floor. 1.1 Purpose This report is intended to provide the client with a general description of the building structure employed in the building and to comment on its general condition as visually apparent at the time of our inspection. In addition, our review of the property is to be our basis to provide our opinion of the probable cost of the associated remedial work that will be required over the next 10 years. Refer to Section 3.0 of this report for Report Limits of Liability. 1.2 Scope of Work In general, the scope of work included the review of prior reports and drawings (where made available), interviews with fire department and city staff familiar with the facility, a visual walkthrough review of the property, sample acoustical surveying (chain dragging and hammer tapping) of the slab surface and soffits and wall elements, and the preparation of this report. 1.3 Cost Basis The costs presented in this report are broken down into immediate costs and anticipated remedial costs over the next 10 years. The immediate costs are associated with those items requiring immediate attention due to code related issues, safety concerns or rapid deterioration if left unattended. The anticipated remedial costs are for those items, which are not of immediate concern but require attention due to ongoing deterioration, current conditions or will require complete replacement within the timeframe of this evaluation. Prior to the commencement of this assignment, the threshold limit for remedial costs was set at $1,000 plus H.S.T. The remedial costs presented in this report have adhered to this threshold limitation unless the concern noted have code related implications; have life safety related

329 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 2 RJC No.: TOR implications; do not fall under the realm of regular maintenance; or, may be detrimental to the proper performance of the system if not addressed. All costs shown here are in 2015 Canadian Dollars. 1.4 Site Visit and Project Personnel Mr. Michael Pond, P.Eng. and Mr. Jagrut Prajapati, EIT of Read Jones Christoffersen Ltd. visited the building on March 30, 2015 to perform a visual review. 1.5 Document Review No past reports or drawings were made available for our review. Read Jones Christoffersen Ltd.

330 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 3 RJC No.: TOR Building Structure 2.1 System Description The building is a four-storey precast concrete and unit masonry block structure constructed circa the 1970 s. The gross floor area of the building is approximately 2,800 sq.ft. (260 sq.m.), which includes the two stairwells, but excludes the two roof terraces and cantilevered balcony slab at the third floor. The structural system of the building generally comprises of a modular precast concrete floor slab systems with cast-in-place concrete toppings supported by structural steel beams and load bearing reinforced masonry block walls. The modular block floor slabs are estimated to be approximately 6-inches thick (including the cast-in-place concrete topping) and reinforced with three (3) continuous carbon steel dowels as confirmed by ferroscan running in one principle direction and grouted in the hollow cells of the precast cross section. During construction, rows of the modular block would likely have been placed in interlocking rows on a wood forming board. Reinforcing steel would have been placed within the hollow sections of the precast floor units and concrete would have been poured and finished, thereby encasing the reinforcing steel and producing the finished floor elevation. This type of floor slab system was typically a proprietary design developed by precast manufacturing companies and common for low and midrise apartment buildings and motels in the 1970 s; however, they are an antiquated structural system that are not commonly used in today s construction industry. The walls of the building are all typically load bearing and constructed of reinforced 8-inch thick concrete masonry unit (CMU) blocks. Ferroscans of the block walls confirmed that there are typically two (2) vertical continuous dowels embedded and grouted in the hollow sections of the CMUs. In addition to the load bearing CMU walls, structural steel beams are also employed to transfer gravity loads from the floor slabs to the CMU block walls. The steel elements are not galvanized, nor are they protected with a fireproofing insulation. The building relies on the reinforced CMU block walls to act as the lateral force resisting system against wind loads and seismic forces; however, given the vintage of the building, it is unlikely that seismic forces were required to be considered as part of the design. Although not confirmed, it is anticipated that the building superstructure is founded on CMU block or cast-in-place foundation walls and strip footings. Read Jones Christoffersen Ltd.

331 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 4 RJC No.: TOR (Refer to Photos 1 to 8 in Appendix A ) 2.2 Observations and Concerns Noted Our visual assessment identified the following areas of concern with respect to the present condition of the building structure:.1 The exterior CMU block walls of the building were exhibiting localized forms of distress and deterioration in the form of displaced masonry block units, deteriorated mortar joints, cracking, and water staining, and efflorescence. (Refer to Photos 9 to 13 in Appendix A )..2 The structural steel framing members were generally in fair condition with only superficial rust staining and some beam end pocket deterioration. (Refer to Photos 14 and 15 in Appendix A)..3 The door and window lintels/headers were typically in good condition except at one interior door location on the second floor. (Refer to Photos 16 and 17 in Appendix A)..4 Water penetration was noted on the underside of the upper roof slab. The locations of water ingress suggested failed roofing termination and tie in details at guardrail post anchor locations and drain bodies. (Refer to Photo 18 in Appendix A)..5 The structural steel stair stringers, landings, and treads were typically in fair condition with no significant signs of distress or deterioration..6 Cracks in the concrete topping was observed on the surface of the 2 nd, 3 rd, and 4 th level floor slabs. Most crack widths were hairline only; however, two large longitudinal cracks had a measured width between 3 to 6mm (Refer to Photos 19 to 22 in Appendix A)..7 Hairline longitudinal cracks were observed on the underside of the modular block suspended floor slabs throughout all floors of the structure. Cementitious parging presumably intended to act as a waterstop repair measure - had been installed at many of the crack locations but was noted to be debonding from the soffit substrate at many locations. (Refer to Photos 23 to 26 in Appendix A)..8 Floor slab deflection was measured using a floor mounted laser levelling device. Approximated slab deflections typically did not exceed.5 (13mm) in most locations, except for the third floor slab above the Burn Room where deflections in excess of 1.5 (38mm) were measured. Read Jones Christoffersen Ltd.

332 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 5 RJC No.: TOR Cementitious Fireproofing on the underside of the third floor slab was noted to be heavily deteriorated, cracking, and debonding from the soffit substrate. Cracking and debonding has significantly reduced the effectiveness of the fireproofing insulation (Refer to Photos 27 and 28 in Appendix A)..10 Isolated spalling or pop outs on the underside of the suspended floor slabs were noted in some locations. The pop-outs were likely caused by combined high moisture and intense heat conditions. The depth of the pop-out typically did not exceed ½ (13mm), which is considered superficial. (Refer to Photo 29 in Appendix A). 2.3 Probable Cost of Repair/Rehabilitation Based on the findings of this review and observations noted above, we are of the opinion that structural repairs and remedial efforts to make the facility safe are required in the immediate and near term (1 to 2 years) to address current levels of deterioration and reinstate the original load carrying capacity of these structural systems. Furthermore, we recommend an allowance for future repairs be carried over the next 10 years to address future anticipated deterioration..1 Immediate Repair Costs Replace Burn Room Fireproofing Insulation $18, Repair Costs with the next 1-2 Years Sub Framing Third Floor above Burn Room $18, Targeted Exterior Wall CMU Block Repairs $50, Localized Floor Slab Rehabilitation $50, Roofing Replacement $35, to 5 Year Repair Costs None Anticipated if Above Recommended Repairs Completed.4 6 to 10 Year Repair Costs Allowance: Additional Targeted Exterior Wall CMU Block Repairs $50, Allowance: Additional Localized Floor Slab Rehabilitation $50, The total anticipated capital repair/rehabilitation expenditures over the next 10 years is $271, (plus H.S.T.). Read Jones Christoffersen Ltd.

333 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 6 RJC No.: TOR Facility Life Expectancy and Replacement Cost The facility is estimated to be approximately 40 years old based on available historic information. The normal life expectancy for an unprotected structure of this type of construction that is regularly exposed to extreme temperature and moisture conditions is anticipated to be approximately 40 to 50 years, after which time demolition and reconstruction would likely be required. The anticipated costs to demolish and reconstruct a new facility of similar size and construction on the existing land would be in the order of $850, plus HST in 2015 Canadian Dollars, excluding soft costs for engineering and design fees, material testing costs, and permitting fees. Read Jones Christoffersen Ltd.

334 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 7 RJC No.: TOR Limits of Liability The review of this property was of a visual nature only. No testing or dismantling of any coverings was performed. This inspection was made on a random basis with no attempt to review or inspect every element or portion of the building. The intent of the inspection was to determine areas of visually obvious deterioration and need for repair and to determine, in a general way, the overall quality and sufficiency of the work inspected but not to ascertain the quality of sufficiency of any particular aspect of the building. No calculations were performed to confirm the adequacy of any of the elements reviewed. Our review of the systems did not include a review of the safety aspects of the installation as this falls under the Jurisdiction of the Governing Authorities. In addition, testing of the building materials for Occupational Health and Safety or substance of potential environmental concern was not conducted. This report is intended to provide the client with a general description of the systems employed in the building and to comment on their general condition, which may be apparent at the time of our inspection. Our comments are not a guarantee or warranty of any aspect of the condition of the building, whatsoever. Drawings made available were used solely for the purpose of obtaining design information on elements hidden from view which the Engineer may require, supplemental to their visual inspection, in order to more fully describe the building but no comments can be made as to the construction of those elements. No attempts have been, as part of this assessment, to determine if there is moisture related deterioration within the concealed space as this was beyond the scope for this assignment. We recommend an independent environmental consultant be retained to confirm with better certainty if internal damage has occurred, determine its extent and provide suggested remediation alternative. This service has not been included as part of this assignment. Any and all previous opinions expressed by Read Jones Christoffersen Ltd., either verbally or in writing, regarding the condition or cost estimates for repair of the above elements are superseded by this report. The above costs are budget figures only, are based on the current market and are in present dollars. The actual costs may vary depending on the time of tendering, the actual detailed scope of work and market conditions. Read Jones Christoffersen Ltd.

335 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 8 RJC No.: TOR Whereas any cost estimates done by the Engineer are based on incomplete or preliminary information and on factors over which the Engineer has no control, the Engineer does not guarantee the accuracy of these costs. Unless otherwise noted, costing information does not include H.S.T. or engineering and testing fees. Costs are based on 2015 Canadian Dollars and assume the work in each discipline is completed in one phase. This report has been prepared for the exclusive use of Client. Read Jones Christoffersen is, however, prepared to provide a reliance letter to future owners of this property. The contents of this report may not be quoted in whole or in part of distributed to any person or entity other than by the Client of those parties possessing a reliance letter. Read Jones Christoffersen Ltd. accepts no responsibility for damages, if any, suffered by any third party as a result of decisions made or actions based on this report. Thank you for selecting Read Jones Christoffersen Ltd. for this project. RJC would be pleased to assist you with the implementation of our recommendations. Should you have any questions or concerns, please do not hesitate to contact this office. This report has been submitted on behalf of the entire consulting team by: Read Jones Christoffersen Ltd. Michael Pond, P.Eng. Principal Building Science and Restoration Read Jones Christoffersen Ltd.

336 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 9 RJC No.: TOR Appendix A Building Structural Photographs Read Jones Christoffersen Ltd.

337 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 10 RJC No.: TOR Photo #1: North Elevation of Four-Storey Training Fire Tower Photo #2: Typical Load Bearing Exterior CMU Block Walls Read Jones Christoffersen Ltd.

338 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 11 RJC No.: TOR Photo #3: East Stair Photo #4: Cantilevered Fourth Floor Balcony Slab with Steel Picket Guardrail Read Jones Christoffersen Ltd.

339 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 12 RJC No.: TOR Photo #5: Typical Overview of Modular Block Floor Slab (Viewed from Underside) Photo #6: Typical Overview of Cast-in-Place Concrete Floor Slab (Viewed from Topside) Read Jones Christoffersen Ltd.

340 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 13 RJC No.: TOR Photo #7: Overview of Structural Steel Framing Members Supporting the Suspended Floor Slabs. Photo #8: Overview of Structural Steel Guard at the Upper Roof Level. Read Jones Christoffersen Ltd.

341 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 14 RJC No.: TOR Photo #9: Sample Photo of Cracked CMU Block Photo #10: Multi-Storey Vertical Crack Through Mortar Joints at Southwest Corner of Main Building Structure Read Jones Christoffersen Ltd.

342 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 15 RJC No.: TOR Photo #11: Distressed CMU Block Photo #12: Overview of Extensive CMU Block Wall Deterioration at South Elevation (Note: Out of Plane Wall Displacement) Read Jones Christoffersen Ltd.

343 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 16 RJC No.: TOR Photo #13: Close Up of Water Staining & Efflorescence Photo 14: Beam End Pocket Deterioration Read Jones Christoffersen Ltd.

344 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 17 RJC No.: TOR Photo 15: Superficial Corrosion of Structural Steel Framing Elements Photo 16: Deteriorated Block Wall Header over Internal Doorway Read Jones Christoffersen Ltd.

345 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 18 RJC No.: TOR Photo 17: Heavily Corroded Door Frame at Internal Doorway Photo 18: Water Penetration through Upper Roof Slab at Guardrail Anchor Plate Read Jones Christoffersen Ltd.

346 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 19 RJC No.: TOR Photo 19: Longitudinal Crack through Concrete Topping at Fourth Floor Photo 20: Cracking in Concrete Topping at Fourth Floor Read Jones Christoffersen Ltd.

347 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 20 RJC No.: TOR Photo 21: Cracking Across Door Threshold at Second Floor Photo 22: Cracking at Second Floor Read Jones Christoffersen Ltd.

348 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 21 RJC No.: TOR Photo 23: Longitudinal Cracks in Modular Block Slab Soffit Photo 24: Cementitious Waterstop Parging Repair at Soffit Crack Read Jones Christoffersen Ltd.

349 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 22 RJC No.: TOR Photo 25: Debonded Parging Repair Material. Photo 26: Cementitious Waterstop Parging Repair at Soffit Crack Read Jones Christoffersen Ltd.

350 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 23 RJC No.: TOR Photo 27: Second Floor Burn Room with Cementitious Fireproofing Insulation on Ceiling Photo 28: Close Up of Debonded and Cracked Cementitious Fireproofing Read Jones Christoffersen Ltd.

351 Structural Condition Assessment Report St. Catharines Training Fire Tower Renown Road, St. Catharines, Ontario April 10, DRAFT Page 24 RJC No.: TOR Photo 29: Typical Superficial Pop Out on Underside of Suspended Floor Slab. Read Jones Christoffersen Ltd.

352 RJC has emerged as the largest independent and Canadian-owned consulting engineering firm in the industry, specializing in structural engineering, restoration, building science and parking planning services. Offices across Canada serve clients locally and globally in both renovation and new construction markets. As part of an integrated design team, our engineers design for sustainability by introducing innovative structural and building science designs that are durable, adaptable and improve the energy efficiency of buildings, while minimizing material use and environmental impact. Throughout RJC s 65 years, our culture and staff development programs have fostered the retention and growth of our people. We have been recognized as one of Canada s Top Employers for Young People and as a regional finalist in Canada s Top 50 Managed Companies program. Toronto: Kitchener: Kingston: Vancouver: Victoria: Nanaimo: Calgary: Edmonton: Lethbridge: Read Jones Christoffersen Ltd. Suite 500, 144 Front Street W Toronto, ON M5J 2L7 Tel Vancouver Victoria Nanaimo Calgary Lethbridge Edmonton Kitchener Kingston Toronto

353 Compendium of Reports: Master Fire Plan Committee A. Water Rescue Program memo dated January 12, For consideration at the BSC meeting of January 18, 2017 and brought back February 6, B. Fire Safety Public Educator memo dated January 12, For consideration at the BSC meeting of January 18, 2017 and brought back February 6, C. Budget Requests Corporate report and memo dated January 12, For consideration at the BSC meeting of February 6, D. Core Services memo dated May 2, ed to Mayor and Council on September 14, 2017 for consideration on October 23, 2017.

354 A Memorandum To: Cc: From: Budget Standing Committee Dave Wood, Fire Chief Larry Jones, Deputy Chief Date: January 12, 2017 Subject: Fire Services Water Rescue Program St. Catharines Fire Services has been involved with Water Rescue for more than 30 years. The initial Water Rescue Program was restricted to Boat Rescue and Shore Based Rescue whereby firefighters would attempt to rescue a victim with the use of rope throw bags, rescue rings and pike poles (long poles with a hook on the end) without entering the water. In and around 1997, Fire Services launched an Ice Water Rescue Program whereby all personnel were trained to enter the water in inclement weather to effect rescue. In the early part of 2000, a comprehensive Ice Water Rescue Program was developed with Shift Instructors and annual training and certification for all suppression staff. In 2015 our department initiated another Water Rescue Program by commencing certification of 15 instructors to train and certify all personnel in Swift Water Rescue. This program was considered an important aspect of our Water Rescue Program due to the city s geography. With Lake Ontario, the Welland Canal and 12 Mile Creek running through the city, we determined our abilities to perform water rescue was limited and required the additional training in Swift Water Rescue. We are currently midway through the training and certifying of our staff however the anticipated completion date is the fall of 2017 Swift Water Rescue mirrors Ice Water Rescue in many respects and therefore certifying our staff is a very smooth transition. As a result, Fire Services will be able to respond to Open Water Rescue, Ice Water Rescue, Swift Water Rescue and Marine Operations with our two small rescue crafts. In order to perform Water Rescue Operations we must adhere to Provincial Standards that are the driving force behind all Water Rescue operations in the fire service today. These standards ensure the health and safety of all rescuers and mandate the procedures, equipment, and training required for compliance. Currently, we reference NFPA 1006, NFPA 1670, NFPA 1978, ULC S555 for Rope and Technical Rescue Equipment, the Canadian Coast Guard and the Ontario Fire College. 1

355 The following outlines some of the equipment required to run and maintain our Water Rescue Programs: Rescue Boats Dry suits which includes gloves, helmets, thermal hoods, and swim fins POLAR 75 rescue platform used for Ice rescue / swift water rescue (this is an inflatable boat that is used to paddle to victims in various types of water) Personal Flotation Devices (high level life jackets) Rope Throw bags Water resistant rope and rope equipment In order to complete the training, certification and purchase the required equipment, this department has spent approximately $47,000 over the last two years. Although the initial outlay of money is high, our current budget appropriates $10,000 annually to cover the cost of all Water Rescue programs. This money covers repairs, replacement, training, certification and any new equipment required as a result of changes in technology, standards or equipment. 2

356 Memorandum B To: From: Budget Standing Committee Deputy Chief, Monique Belair Date: January 11, 2017 Subject: Fire Safety Public Educator The Fire Protection and Prevention Act, 1997 establishes responsibility for fire protection services. In Part II - Responsibility for Fire Protection Services, the legislation outlines municipal responsibilities as follows: 2. (1) Every municipality shall: (a) (b) 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. As a principled approach to delivering effective and efficient fire protection services, the Office of the Fire Marshal and Emergency Management (OFMEM) advocates the Three Lines of Defence to prevent and mitigate fire loss, injury and death, and promoting firefighter safety within a community. The Three Lines of Defence are: 1. Public Fire Safety Education 2. Fire Safety Standards and Enforcement 3. Emergency Response The OFMEM conducted a comprehensive review of the first two lines of defence in the City of St. Catharines and provided Council with Report on March 5, The report contained 29 recommendations pertaining to legislative compliance and optimization of St. Catharines municipal fire protection delivery model. Public fire safety education (PFSE) is the delivery of information, materials and messages in a planned way and the evaluation of those messages, based on occupant behaviours in the event of a fire. PFSE provides residents the knowledge they require to prevent fire and in the event of a fire, to take steps to preserve one s life or that of another. PFSE is measurable in terms of both actual presentations and at the more analytical level in evaluating occupant behaviours (short/medium and longer term) leading up to a fire and to the actual incident. The effectiveness of the public education program in a community is dependent upon implementing programs based on risk and delivering those programs in the most 3

357 effective and efficient manner. Public fire safety education is a high priority in the fire protection delivery system and enhancements to the system will provide greater protection to the City of St. Catharines. Public fire safety education is provincially mandated for all fire services. Currently, the role of full-time (FT) public educator is not a position within the organizational structure within Fire Prevention Division. Presently, the role of public educator is a shared responsibility among all fire prevention staff. Fire Prevention staff are also responsible for the development and implementation of educational programs based on the identified risk, fire investigation statistical data and the need and circumstances within the community. These programs provide public fire safety education to multiple age groups, special interest groups and industry within the city. Specific initiatives developed by Fire and Emergency Management Services (FEMS) Fire Prevention Division can be divided into two categories: programs and activities. 1. Fire safety programs are developed and implemented with one or more key fire safety deliverables or benefits and usually have start and finish dates. 2. Fire safety activities are a single task or event with action items. The following outline examples of FEMS current programs and activities offered and/or participated in by staff and offered to the community: Alarmed for Life Program The Residential Alarm Awareness Program Adopt a Sparky School Campaign After the Alarm Program Fire Extinguisher Training Retrofit of the Downtown Core Program Vulnerable Occupancies Annual Program TAPP-C Joint Inspection Program of Bars, Restaurants and Nightclubs Safety messaging partnership with City transit on all 77 buses - a partnership with City Transit to provide targeted Fire Safety Messaging based on seasonal fire risks and demographics. Fire Prevention Week FunFest Carbon Monoxide and Emergency Preparedness weeks Stations Other formal requests The delivery of these public fire safety education initiatives promotes interaction between the community and Fire Prevention Division which connects the fire department to the people it serves. 4

358 The following chart represents comparable departments based on population that have FT public educators and deliver public education activities/programs in their community. Included in the chart is recent OFMEM statistics for fatal fires in the province of Ontario. Municipal Fire Service Population 2011 Public Educator FT Thunder Bay 108, Barrie 136, Cambridge 123, St Catharines 131, Guelph 121, Kingston 123, Niagara Falls 82, Oshawa 149, (also conduct inspection) The estimated cost for a FT Public Educator for the City of St. Catharines based on 2015 rates is a salary range from $60, to $92,415. 5

359 C St.Catharines Corporate Report Budget Standing Committee Report from Corporate Services, Commissioner Date of Report: February 2, 2017 Report Number: CSC Date of Meeting: February 6, 2017 File: Subject: Outstanding Budget Requests Recommendation That the Budget Standing Committee receive the attached memorandums for information purposes. Report Following the department presentations and further discussion, the Budget Standing Committee requested additional information from staff. The attached memorandums from Legal and Clerks Services and Fire and Emergency Management Services provide the additional information as requested. Fire and Emergency Management Services January 18, 2017 (Appendix 1) That staff refer the Fire Safety Public Educator report back to staff for more information including the different financial scenarios: 0%, inflationary and +1 %increases. Fire and Emergency Management Services January 18, 2017 (Appendix 2) That the Fire Services Water Rescue Program report be referred back to staff to provide statistics over the last four years of how many recoveries were done versus how many lives saved and look at comparable communities that have this type of service; That staff be directed to investigate how the Swift Water Rescue Program came into existence without Council approval; that staff prepare a further report as to what programs have been added over the last 10 years with respect to fire services that didn't come through for council approval. Fire and Emergency Management Services January 23, 2017 That, given its critical importance, the 10-year history of changes that have been made to FEMS service levels without Council approval requested at the BSC meeting on January 18, 2017, be available for consideration prior to the budget deliberations; and That FEMS also report back with the following information; 10 year average increase for Fire Services, List of provided services Report Page 1 of 2 6

360 Training schedule for certifications in services The cost per person, per year to maintain the certifications Legal and Clerks Services January 25, 2017 (Appendix 3) That staff be directed to prepare a report with full documentation of savings from the following initiatives: Docupet anticipated revenue Financial Implications The financial implications are identified in the individual memorandums for the Budget Standing Committee's information and consideration. Prepared by: Robyn Ertelt, Administrative Assistant Approved by: Shelley Chemnitz, Commissioner of Corporate Services Report Page 2 of 2 7

361 CITY OF ST. CATHARINES To: Mayor and Council Cc: Department Heads From: Dave Wood, Fire Chief Memorandum 1 Date: February 2, 2017 Subject: BSC Additional Information Requested from FEMS On January 18, 2017 Fire and Emergency Management Services were requested to provide information to the BSC regarding the FTE for a Fire Safety Public Educator. The BSC committee requested, "That the Fire Master Planning Review Committee include the impact on Fire Services, if any, if Fire Services were limited to budgetary increases, starting in the 2017 budget cycle, of 0%, 0% plus inflation, and inflation plus 1 %" The BSC requested to review this data prior to any consideration of a PublicEducator. The following chart represents the information requested and indicates the financial impacts to the FEMS budget for Scenario #1 To meet a 0% budget increase, there would be an additional $149,288 decrease to the FEMS budget. Since the operational budget reductions have severely limited emergency services equipment (auto extrication) and training operations, this reduction would reduce the FEMS Suppression staffing complement by one Probationary fire fighter. Scenario #2 To meet the BSC budget increase (inflation) of 2.1 %, this would amount to a $358,864 increase to the FEMS budget. With this increase FEMS could include the following items: 1. Fire Prevention Public Educator 2. One probationary fire fighter (removed in scenario #1). 3. Replace the (unaccommodated items) station assessments for fire stations #1, 2, 3, and Possible Fire Master Plan recommendations. Scenario #3 To meet the BSC budget increase (inflation) of 3.1 %, this would amount to a $600,841 increase to the FEMS budget. With this increase FEMS could include possible MFP recommendations. 8

362 City of St. Catharines Fire and Emergency Management Services 2017 Draft Budget Submission Services Bud Initial Budget Submission Revisions presented by staff Level 1 Defer 2 Station Condition Assessments $ Review of actuals -protective clothing Level 2 Reduce provision for negoiationlarbitratio Review of actuals -overtime Reduce economic adjustment Level 3 Reduce economic adjustment Revised Budget Previous budget Increase in Budget 10, 000 2, , ,000 50, ,000 $ 24,679,001 ~ 332,000 $ 24,347,001 $ 24,197,713 $ 149, % The above schedule assumes that the revisions above are approved by BSC. Scenarios requested by the BSC A 0% budget increase This requires a further reduction of: $ 149,288 This could be achieved by: Less: 1 Prob. FF 85,415 This would decrease a Platoon complement by one fire fighter, causing an increase in overtime to meet the minimium on duty Platoon roster of 27 personnel. $ 63,873 A 2.1%budget increase (inflation) This provides additional budget funding of: $ 358,864 This additional funding could provide for: Public Educator $ 98,822 Unaccom -Stn 1,2,3,6 Assess $ 20,000 $ 118,822 Balance $ 240,042 Funding would allow for the purchase of end of life emergency services equipment such as auto extrication equipment not currently funded by the fire equipment reserve. Funding would allow possible recommendations from the Master Fire Plan to be implemented if approved b Council. A 3.1%budget increase (inflation plus 1 /a) This provides additional budget funding of: $ 600,841 This additional funding could provide for: Funding would allow possible recommendations from the Master Fire Plan to be implemented if approved by Council. Fundin would allow for the purchase of end of life emer enc services equipment. 9

363 CITY OF ST. CATHARINES Memorandum 2 To: Budget Standing Committee Cc: Department Heads From: Dave Wood, Fire Chief Date: January 24, 2017 Subject: BSC Additional Information Request from FEMS Services Provided by FEMS On January 18, 2017 Fire and Emergency Management Services (FEMS) were requested to provide information to the BSC regarding 1) Water Rescue Program and 2) A Public Educator within Fire Prevention. Following presentations by staff, the BSC requested additional information. This Memo will attempt to provide supplemental information and address the questions posed. Since the 1980s, FEMS has been involved in all of our Core Services /Specialty Rescue programs that includes Water Rescues, Boat Rescues, Auto Extrication, Hazmat and Rope rescues. Specifically, swift water rescues have been included as a service within the water rescue program since that time. These services remain unchanged and over the last 10 years no changes to service level have been made. Training Programs Prior to 1999, St. Catharines Fire Services did not have a formal Training Program and like most departments provided training to personnel by referencing firefighting manuals, Training Precis, and relying on the experience of its employees. In 2000, the Training Division reported to Management the need to review, revise, and develop a comprehensive Training Program to meet the current standards that were now being recognized and mandated provincially. In 2004, FEMS was audited by the Ministry of Labour, which involved three days of reviewing all divisions within the department. Upon completion of the Training Division audit, the Inspector commended our Training Program, the thoroughness of Lesson Plans, Record Keeping, the Recruit Program and meeting provincial standards and guidelines. Although FEMS was not issued any orders, the MOL Inspector did ascertain a need for the department to identify standards adhered to within our Specialty Programs. Although trying to follow industry best practices in training our personnel on Specialty Programs, record keeping, and maintained all of our equipment, FEMS was not following any specific programs or standards consistently. The MOL Inspector recommended changes 10

364 to our programs in order to achieve compliance and ensure "due diligence" as referenced in the Occupational Health and Safety Act. As a result, through budget approval, management allocated monies to be spent to update and overhaul our specialty rescue training programs to ensure that only approved and certified programs would exist within the department. This resulted in external companies being hired to provide training and certification for all personnel in Specialty Programs such as Auto Extrication, Pump Operations, Haz-Mat and Medical. Although FEMS still practiced and delivered technical rope rescue and water based rescues, it was determined that the specialty programs were our immediate priority. After one year of training by external agencies, it became clear that the cost of maintaining certification with an external provider for all personnel was not cost effective. In 2014, FEMS utilized our own in-house Training Officer who is certified in technical rescue. As a result, our own in-house expert was tasked with performing a comprehensive evaluation of all of our programs to determine gaps, deficiencies and make recommendations to ensure all of our technical programs were current and were meeting the NFPA standards. In late 2014 our Training Officer presented a report which included identification of the programs that required immediate attention based on geography of the city, call volume and risk. In an effort to be fiscally responsible and to provide a more efficient training program for our personnel, Train the Trainer courses were then scheduled whereby personnel would become certified in a specific program and assist in creating lesson plans, buying equipment, provide training and sit on a committee to oversee the program and its development. This resulted in comprehensive programs that ensured adherence to recognized standards, proper inspection, maintenance and inventory of all equipment and most importantly, properly trained personnel and the proper protection for the residents of St. Catharines. Although our specialty training programs were reviewed, we still have to address our Haz-Mat program to meet our Hazard Identification Risk Assessment (H.I.R.A.) and our comprehensive community based risk assessment which deals with high hazard facilities within our community that create a specified risk for citizens. The following information responds more specifically to questions asked by the BSC: 11

365 BSC Request #1 Staff provide a breakdown of the different Core Services that Fire and Emergency Management Services provide. Response The Core Services that FEMS provides to our community is as follows: Emergency Patient Care Niagara Regional Firefighter Defibrillation Program, Emergency Patient Care Emergency Vehicle Operations Apparatus Operation, Aerial Operations, Pump Operations Essentials of Suppression Fire Ground Survival, Suppression Core Professional Development Recruit, Reclassification, Promotions Risk Management Incident Management System Pre Incident Planning Technical and Specialty Rescue Rope Rescue, Swift Water Rescue, Ice Rescue, Boat Rescue, Vehicle Rescue, Confined Space Rescue, Trench Rescue, Machinery Rescue, Structural Collapse, Hazardous Materials BSC Request #2 Fire Services Water Rescue Program a four year comparison to reflect how many rescues have occurred vs. how many lives have been saved. Response To properly reflect the incidents that FEMS has responded to over the previous four years, the following chart identifies those findings: Water Response Report 5 Years Assistance Recovery Standby L anched escue Totals

366 $ $ $ $ $ $ During these incidents water rescue procedures were followed while launching the rescue boat or launching our water based floatation raft to either assist, rescue, or perform a recovery on one of the waterways within our municipal boundaries. St. Catharines FEMS is currently the only emergency service that responds to incidents on all waterways within our municipal boundaries including Lake Ontario during the winter months. The Canadian Coast Guard resides at a base station (located below Lock One on the west side of the canal) throughout the spring, summer and fall and then remove their boats and personnel for the winter season. Niagara Regional Police Services (NRPS) follow the same model due to the conditions and challenges of dealing with emergencies in cold weather conditions. St. Catharines FEMS is the only agency available to assume sole responsibility for any and all incidents that may arise. St. Catharines FEMS has been deployed to assist other municipalities with Water Rescue incidents within our Niagara Regional Mutual Aid Plan. BSC Request #3 That Staff report back on, what is the cost per person, per year to maintain each of our certifications for the Core Services. Response The chart below includes the services provided and the cost per person per year as requested by the BSC: SPECIALIZED PROGRAMS -INSTRUCTOR CERTIFICATION Total Number Number of of Hrs to be Annual Hrs to Trainers to Certified as an Maintain Annual Overtime Certify Instructor -All Certification Certification Hourly Rate - Specialized Instructors Platoons per Instructor Costs Trainer Total Cost Program Medical ($75.00 per FF) $ 1, $ $22, Auto Extrication no cost $ $ 4, Hazmat no cost $ $14, Ice/Open Water Rescue no cost $ $ 4, Swift Water Rescue no cost $ $ 4, Technical Rope Rescue Boat Rescue no cost $ no cost $ $23, $ 7, TOTAL $ 81,

367 % In order to provide annual recertification of instructors in each program, there is a requirement of approximately 80 hrs each for one Training Officer to provide all Sign-offs and paperwork. Total # of Hours Overtime Rate Overtime Cost Instructor 80 $ $6, TOTAL COST over 5 years $$$, /15 Rates 5years $17,631.Q4 =7 Programs $2, BSC Request #4 That Staff provide the 10 year average increase for Fire and Emergency management Services. Response The average increase for Fire Services over the last 11 years as requested by the BSC: Fire and Emergency Services Budgets to Budget Budget Budget Budget Budget Budget Budget Budget Budget Budget Budget Fire Services Fira Services 24,190,753 23,337,504 22,872,888 22,306,129 21,853,240 20,937,283 20,406,185 20,123,419 18,940,403 18,832,060 17,841,218 Emergency Planning 6,960 6,960 12,848 12,848 17,873 20,720 23,220 23,220 10,000 10,000 10,000 Vested Sick Leave- Fire Total Fire Services Budget 24,797,713 23,344,464 22,885,736 22,318,977 21,871,113 20,958,003 20,429,405 20,146,639 18,950,403 18,842,060 17,851,218 Percentageincreasefrom PriorYear 3.66% 2.00% 2.54% 2.05% 4.36% 2.59% 1.40% 6.31% 0.58% 5.55% 7.41% Total City Expenditures: 92,542,559 90,452,461 90,796,371 88,012,964 84,683,905 82,409,373 80,525,660 79,707,627 77,160,125 74,357,903 71,207,688 Fire as % of City Expenditures: % % % % % % % % % Total Budgetwith Boardsand $108,472,530 $105,843,072 $105,533,621 S102,267,522 $98,892,351 $95,784,129 $92,981,141 $91,701,555 $89,663,708 $86,992,157 $83,932,187 Commissions Fireas%of All Expenditures: 22.3% 22.1% 21.7% 21.8% 22.1% 21.9% 22.0% 22.0% 21.1% 21.7% 21.3% BSC Request #5 That Staff report back on what our comparator communities are doing regarding Water Rescue Programs. 14

368 Response To provide the BSC with their request for our Fire Service municipal comparators and the Specialty Programs that they deliver, the following chart has been provided: Municipal Comparators Specialty Programs Dept. Technical Confined Trench Swift Ice/Open Hazmat Auto Boat Roe S ace Rescue Water Water X Cambrid e Yes Yes Yes Yes Yes Yes No Barrie Yes Yes Yes No Yes Yes Yes Yes ThunderBa Yes Yes No Yes Yes Yes Yes Yes Windsor No No No No No Yes Yes No Kin ston Yes Yes Yes No Yes Yes Yes Yes Nia ara Falls Yes Yes Yes Yes Yes Yes Yes Yes Oshawa Yes Yes Yes Yes Yes Yes Yes Yes The above table indicates the Comparable departments and their involvement in Specialty Rescue. The following outlines the response answers: "Yes" Currently practicing, training and responding to the Topic "No" Not involved with this service BSC Request #6 That Staff provide further information on the Training Program that the Fire Emergency Management Services follows for the year. Response 2017 Firefighter Training Schedule.... National Occupational Competency Profile for Paramedics NOCP-01, Emergency Patient Care Principles 1 NOCP-02, Medical Legislation 1 NOCP-03, Patient Communication 1 NOCP-04, Patient Movement and Safety 1 NOCP-05, Responder Safety 1 NOCP-06, Multiple Patient Incidents 1 NOCP-07, Patient Assessment 1 NOCP-08, Focused Patient Assessment 1 NOCP-09, Airway and Respiratory Incidents 2 NOCP-10, Cardio Pulmonary Resuscitation and Defibrillation 2 NOCP-11, SoftTissue Injuries 1 NOCP-12, Musculoskeletal Injuries 1 NOCP-13, Manage Patient Assessment and Care 2 NOCP-14, Unique Patient Populations 2 standard total hours 18 NFPA 1001, Firefighter , Firefighter Principles , Firefighter Communications 1 15

369 , Self-Contained Breathing Apparatus , Response Safety , Structural Access , Defensive Fires , Search and Rescue , Offensive Fires , Tactical Ventilation , Property Conservation , Portable Extinguishers and Public Education , Equipment Maintenance , Flammable Gas and Liquid Fires , Basic Vehicle Extrication , Risk Management 2 standard total hours 24.5 NFPA 1002, Apparatus Operator , Apparatus Readiness , Apparatus Operation , Pump Operation , Apparatus Water Supply , Aerial Operation , Tanker Operation 1 standard total hours 10 MFPA 1006, Technical Rescue , Technical Rescue Core Competencies , Rope Rescue Operations I , Rope Rescue Technician I , Rope Rescue Operations II , Rope Rescue Technician II , Vehicle Extrication I , Vehicle Extrication II , Water Rescue Core Competencies , Water Rescue Operations I , Water Rescue Technician II , Swift Water Rescue Technician II , Ice Water Rescue Technician II 2.5 standard total hours 26.5 NFPA 1026, Incident Management , Incident Management Principles , Establish and Maintain Command , Strategic and Tactical Communications , Incident Management Organization , Incident Size-up and Action Plan , Monitor Resources and Action Plan , Terminate Command , Incident Safety Principles , Establish Incident Safety , Function as Incident Safety Officer , Evaluate Incident Safety , Maintain Incident Safety 1 16

370 standard total hours 17.5 NFPA 472, Hazardous Materials , Hazardous Materials Awareness , Hazardous Materials Operations , Hazardous Materials Principles 1 standard total hours 4 NFPA 1407, Rapid Intervention Crew , Rapid Intervention Crew Deployment , Emergency Air Supply , Package Downed Firefighter , Firefighter Self-Rescue , Moving Firefighters Up and Down Stairs , Elevated Firefighter Rescue , Lifting Downed Firefighter 1 standard total hours 8 NFPA 1410, Initial Emergency Scene Operations , Supply Fire Ground Pump from Hydrant , Supply Multiple Fire Ground Pumps , Supply Fire Ground Pump from Static Source , Supply Elevated Master Stream from Fire Ground Pump , Supply FDC from Fire Ground Pump 1.5 standard total hours The 2017 Firefighter Training Schedule provides the total hours as required by NFPA 1001 (Firefighter Level 1 & 2). The 118 hours required is based per person; however the completion time is longer due to the fact that each firefighter must be signed off for each subject. Additionally, there are other mandatory training hours required for personnel outside of this schedule. The additional hours vary from hours per person. They include: Corporate Training Initiatives (Officer Development, Anti-Harassment Training, Mental Health Awareness) Annual review of new and existing Corporate Policies New departmental equipment New departmental procedures Reclassification Training Annual Fit Testing of all Respiratory Equipment (Masks -both Self Contained Breathing Apparatus Masks and Medical Masks) Annual Decontamination review 17