Transcript Fire Organizational and Operational Review

Final Report
Council Presentation, City of Cornwall
Steve Thurlow
Dillon Consulting Limited
March 30, 2015
F in a l R e po r t
• Objectives
• Municipal Responsibilities
• Methodology
• Scope of Work
• Strategic Priorities
• Community Fire Risk Assessment
• Recommendations
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F in a l R e po r t
• Assessment of station, staffing and apparatus implications
of NFPA 1710, 1720 and Office of the Fire Marshal and
Emergency Management, Ontario Public Fire Safety
Guidelines;
• Consideration of population and employment growth
impacts and future growth patterns on department
operations and service delivery, within a twenty year
planning horizon;
• Comprehensive review of all divisions within CFD;
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• Consideration of mutual and automatic aid agreements;
• Confirmation of non-growth related department needs and
identification of general approach/ methodology to allocate
growth related capital costs between residential and nonresidential users of services;
• Engage and involve stakeholders through innovative and
targeted consultation;
• Development of recommendations, financial implications
and an implementation plan.
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Fire Protection and Prevention Act 1997 (FPPA)
states that every municipality shall:
(a) Establish a program for public education with
respect to fire safety and certain components of fire
prevention; and
(b) Provide other fire protection services as it
determines may be necessary in accordance with its
needs and circumstances.
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(a)Establish
Establishaaprogram
programfor
forpublic
publiceducation
education
(a)
• Simplified Risk Assessment – to identify
the extent of other fire protection services;
• A smoke alarm program;
• Fire safety education activities
distributed to residents/occupants; and
• Inspections upon complaint or when
requested to assist with code compliance.
Source: Cornwall Standard Freeholder, October 8, 2013
http://www.standard-freeholder.com/2013/10/08/fire-prevention-week-vital-safety-message
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(b)
otherfire
fireprotection
protection
services
(b) Provide
Provide other
services
• Identify the level of fire protection
(suppression) service the municipality deems
necessary based on its own “needs and
circumstances.”
• Determined through evaluating factors such
as: fire risk, liability, financial capabilities,
resources, and community and Council
expectations.
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Determining local needs and circumstances includes three primary
elements:
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2
3
Analysis of economic circumstances including comparable communities;
Developing a Comprehensive Community Fire Risk Assessment;
Assessing the capabilities of the existing fire protection services.
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• Included consideration of previous reports and
plans:
» 2013 OFMEM Review of Fire Protection Services;
» 2012 Development Fees Review Study;
» 2010 Fire Station Location Study; and
» 2007 Fire Underwriters Survey
• Included developing recommendations that include
options for Council’s consideration in determining
the fire protection services to be provided.
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The utilization of a Comprehensive
Community Fire Risk Assessment to
determine the level of existing and projected
fire safety risks within the municipality as the
basis for developing clear goals and
objectives for all fire protection services.
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The optimization of the first two lines of
defence including public education and
prevention, and the utilization of fire
safety standards and enforcement to
provide a comprehensive fire protection
program within the municipality based on
the results of the Comprehensive
Community Fire Risk Assessment.
FIRST TWO LINES OF DEFENCE
Public
Education and
Prevention
Fire Safety
Standards and
Enforcement
• Smoke Alarm Program,
school and seniors
education, risk
management, etc.
• Inspections, Occupancy
Inspections, Licensing
Approval, Violation
Enforcement, Fire
Investigations, etc.
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Emphasis on strategies that support the
sustainability of fire protection services
that provide the most cost effective and
efficient level of fire protection services
resulting in the best value for the
community.
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Definitions used within the OFMEM Fire Risk Sub-Model and
Integrated Risk Management (IRM) Web Tool.
Probability
Consequence
the likelihood of a fire occurring
the impact on injury, loss of life, property
damage and/or environment from a fire
Both probability and consequence are measured as a
range of 0 to 100 in IRM Web Tool.
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Follows
framework of
OFMEM Fire Risk
Sub-Model
and
Integrated Risk
Management
(IRM) Web Tool
Risk Factor Category
Building Factors
First Line of Defence –
Public Fire Safety Education
Second Line of Defence –
Fire Safety Standards and Enforcement
Third Line of Defence –
Emergency Response
Probability
Consequence
33.33%
25%
33.33%
25%
33.33%
25%
N/A
25%
Note: The probability for emergency response is not included as it does not factor or contribute to the probability of a
fire occurring.
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Results of existing
conditions analysis of
the major building
occupancy
classifications using
IRM Web Tool.
Occupancy Classification
A
B1
B2
B3
C
C
C
C
D
E
F1
F2
Assembly
Detention
Care and Treatment
Care
Hotel
Multi-Unit <7
Multi-Unit >7
Rooming
Personal/Business
Mercantile
High Hazard
Medium Hazard
EXISTING
EXISTING
PROBABILITY
CONSEQUENCE
60.91
39.35
22.73
26.71
36.74
55.24
56.69
28.75
46.08
46.12
40.90
43.77
45.30
27.66
15.60
16.99
25.96
42.26
42.94
21.50
35.47
36.10
28.39
31.65
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• City of Cornwall represents the typical level of risk
that would be found in comparable size and risk
municipalities within the Province of Ontario.
• The City’s population is anticipated to grow
through greenfield development at a modest rate
of 0.20% annually over the coming 20 year
period (to 2031).
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• Proportion of senior population in Cornwall is
20.1% (compared to 14.6% for Ontario).
• Residential occupancies comprise 92.1% of the
community’s building stock.
• 76% of the residential building stock was built
prior to the adoption of the Ontario Fire Code.
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Results of future
conditions analysis of
the major building
occupancy
classifications using
IRM Web Tool
assuming the
implementation of the
recommendations of
the proposed Fire
Master Plan.
EXISTING
FUTURE
EXISTING
FUTURE
Occupancy Classification
A Assembly
B1 Detention
PROB.
60.91
39.35
PROB.
30.72
18.89
-50%
-52%
CONS.
45.30
27.66
CONS.
20.14
9.56
B2
B3
C
C
C
Care and Treatment
Care
Hotel
Multi-Unit <7
Multi-Unit >7
22.73
26.71
36.74
55.24
56.69
14.40
26.71
23.20
33.37
34.83
-37%
0%
-37%
-40%
-39%
15.60
16.99
25.96
42.26
42.94
6.85
14.49
13.30
23.35
24.03
-56%
-15%
-49%
-45%
-44%
C
D
E
F1
F2
Rooming
Personal/Business
Mercantile
High Hazard
Medium Hazard
28.75
46.08
46.12
40.90
43.77
23.55
41.76
37.72
27.38
33.06
-18%
-9%
-18%
-33%
-24%
21.50
35.47
36.10
28.39
31.65
15.09
32.23
29.80
15.73
21.12
-30%
-9%
-17%
-45%
-33%
% Change
% Change
-56%
-65%
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Recommendations
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Recommendations
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1. It is recommended that the mission statement of the Cornwall Fire
Department (CFD) be updated to include a vision statement and to
reflect the framework of the OFMEM PFSG 03-02-13 “Master Planning
Process for Fire Protection” subject to approval of the proposed Fire
Master Plan by Council.
2. It is recommended that the Comprehensive Community Fire Risk
Assessment be updated on an annual basis by the Fire Chief and be
included within a Fire Department Annual Report to Council for
consideration.
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3. It is recommend that subject to Council’s
consideration and approval of the proposed
Fire Master Plan that a new Establishing and
Regulating By-Law for the Cornwall Fire
Department be developed following the
framework of PFSG 01-03-12 “Sample
Establishing and Regulating By-law and
PFSG 04-12-13 “Core Services (Response
and Support) and Associated Guidelines”.
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4. It is recommended that the Fire Chief review all fire related by-laws
on an annual basis as a component of developing the proposed Fire
Department Annual Report for Council’s consideration.
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5. It is recommended that the performance objectives of the NFPA
1221 Standard for fire dispatching services be included within the
proposed Fire Department Annual Report.
6. It is recommended that the CFD develop an Operating Guideline
Committee to conduct an annual review of all current Operating
Guidelines; where necessary recommend revisions or identify where
new operating guidelines may be required; and assign priority to
compliance with the OHSA Section 21 Guidance Notes.
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7. It is recommended that the Fire Chief review the current operating
guideline and policy structure of the CFD and develop a revised
structure to clearly delineate where the use of policies and operating
guidelines will be applied.
8. It is recommended that the City of Cornwall complete the review of
the current Community Emergency Plan including considering
options to revise the existing Office of Emergency Management
organizational structure.
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F in a l R e po r t
9. It is recommended that Council approve the strategic priorities identified
within the proposed Fire Master Plan to guide the development and delivery of
fire protection services within the City of Cornwall including:
• The utilization of a Comprehensive Community Fire Risk Assessment to
determine the level of existing and projected fire safety risks within the
municipality as the basis for developing clear goals and objectives for all
fire protection services shall be considered a strategic priority of the
Cornwall Fire Department;
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9.
…to guide the development and delivery of fire protection services within the City of
Cornwall including:
• The optimization of the first two lines of defence including public education
and prevention, and the utilization of fire safety standards and enforcement to
provide a comprehensive fire protection program within the municipality based
on the results of the Comprehensive Community Fire Risk Assessment shall be
considered a strategic priority of the Cornwall Fire Department; and
• Emphasis on strategies that support the sustainability of fire protection
services that provide the most cost effective and efficient level of fire
protection services resulting in the best value for the community.
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F in a l R e po r t
Recommendations
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10. It is recommended that subject to Council’s
consideration and approval of the proposed
Fire Master Plan that the current draft Fire
Prevention Policy be reviewed and
updated utilizing the framework of PFSG 0445-12 “Fire Prevention Policy” and the fire
prevention and public education service
objectives approved by Council.
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11.It is recommended that the CFD
develop goals and objectives for
each of the public fire safety
education activities and programs to
be delivered, and that these be
included within the proposed Fire
Department Annual Report.
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12.It is recommended that subject to the
consideration and approval of the
proposed public fire safety
education activities and program
cycle objectives by Council that they
be included within the proposed Fire
Prevention Policy and proposed
Establishing and Regulating By-Law.
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F in a l R e po r t
13.It is recommended that the CFD
implement a new dedicated position
of Public Education Officer reporting
to the Senior Fire Prevention Officer
with the responsibility to coordinate
and optimize the public fire safety
education objectives of the CFD.
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F in a l R e po r t
14. It is recommended that the CFD prioritize the delivery of the Home
Smoke Alarm Program to areas of the community where extended
emergency response times are present due to long travel distances
and where identified vulnerable demographics such as seniors may
reside, and that the goals and objectives be identified for the Home
Smoke Alarm Program to be included within the proposed Fire
Prevention Policy, and proposed Fire Department Annual Report.
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15.It is recommended that subject to the consideration and
approval of the proposed fire inspection cycle objectives by
Council that they be included within the proposed Fire
Prevention Policy and proposed Establishing and Regulating
By-Law.
16.It is recommended that the Ontario Fire Code Enforcement
strategies be considered in developing the proposed Fire
Prevention Policy.
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F in a l R e po r t
17.It is recommended that a review of the fire departments
participation in the site plan review process be considered,
and where possible further interaction of the fire department
with the Department of Planning, Parks and Recreation and the
Building Department be encouraged and defined through a
documented process.
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18. It is recommended that the CFD update Operating Guideline 8:02-00
“Pre-Planning – Pre-Incident Planning” to assign the responsibility for
developing Pre-Incident Plans and Quick Action Plans to on-duty fire
suppression crews, and that the updated guideline prioritize
devolvement of plans for the high and moderate risk occupancies
identified by the Comprehensive Community Fire Risk Assessment.
19. It is recommended that the Cornwall Fire Department consider
implementation of the Community-Based Fire Protection Model to colocate fire suppression and fire prevention staff as identified within this
FMP.
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Recommendations
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20. It is recommended that the CFD develop an enhanced comprehensive
annual training program based on the NFPA Professional Qualifications
Standards in addition to the core functions of a training program identified
within the FMP.
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21. It is recommended that within the proposed
Comprehensive Annual Training Program access
to live fire training on annual basis be
considered.
22. It is recommended that the CFD consider
investigating opportunities to partner with other
neighbouring fire departments, service
providers such as the police service, hydro/public
works and the private sector to see if there are
potential partnership opportunities to develop a
joint training centre in Cornwall.
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23. It is recommended that the CFD investigate the use of an online
firefighter training program as a component of delivering the
proposed comprehensive annual training program.
24. It is recommended that the CFD report to Council through the
proposed Fire Department Annual Report indicating the status of the
goals and objectives of the proposed Comprehensive Annual
Training Program.
25. It is recommended that the CFD develop a succession plan including
a focus on opportunities for coaching and mentoring.
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Recommendations
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26. It is recommend that the CFD formalize
the proposed emergency response
protocols within a new Operating
Guideline for dispatching a minimum
depth of response of four firefighters to
low risk occupancies, 14 firefighters to
moderate risk occupancies and 24
firefighters to high risk occupancies.
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27. It is recommended that the CFD develop a detailed tracking process for
identifying the assembly time on scene of the proposed minimum
emergency response protocols for initial response and depth of response
including the low, moderate and high risk occupancy’s including turn out time,
travel time and on scene arrival time of all responding firefighters.
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28. It is recommended that the CFD develop performance goals and
objectives for the emergency call back process for off duty
firefighters to assess the depth of response objectives of the CFD,
and that these goals objectives be included within the proposed Fire
Department Annual Report.
29. It is recommended that the CFD implement a technology solution to
alert and track the performance objectives of the emergency call
back process for off duty firefighters.
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30. It is recommended that the City of Cornwall further consider the
option of utilizing Volunteer/Part-time firefighters to enhance the
depth of response resources of the CFD.
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31. It is recommended that the CFD further
investigate the use of enhanced
Automatic Aid Agreements to increase
the depth of response resources of the
CFD for moderate and high risk
occupancies.
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32. It is recommend that the CFD implement a process to monitor and
reduce the turnout time of full-time firefighters to be consistent with
the performance measures for turnout time identified within the NFPA
1710 standard.
33. It is recommended that the City of Cornwall complete a detailed
financial analyses including the costs for land acquisition and
construction of the proposed three station and enhanced two fire
station model identified within the proposed Fire Master Plan.
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34. It is recommended that Council review the Staffing Options identified
within the proposed Fire Master Plan in considering the level of fire
suppression services to be provided by the Cornwall Fire
Department.
35. It is recommended that the proposed organizational chart and
reporting structure for the Cornwall Fire Department identified within
the proposed Fire Master Plan be approved and included within the
proposed new Establishing and Regulating By-Law.
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Recommendations
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36. It is recommended that the CFD apply the best practice of 15 years
as a front-line service with an additional five years of reserve be
applied when developing the fleet replacement plan.
37. It is recommended that the CFD develop and maintain a
standardized list of equipment for all front line and reserve
emergency response apparatus.
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