Grand Bay-Westfield Fire Service Review (March 2023)

Grand Bay-Westfield Fire Service Review Final Report March 8, 2023

Prepared By: Transitional Solutions Inc.

Table of Contents LETTER OF TRANSMITTAL

3

ACRONYMS

4

EXECUTIVE SUMMARY

5

SUMMARY OF RECOMMENDATIONS

7

BACKGROUND and METHODOLOGY

12

GOVERNANCE and ADMINISTRATION

29

FIRE RESCUE OPERATIONS

44

HUMAN RESOURCES – PEOPLE OPERATIONS

71

BUDGET AND FINANCIAL MANAGEMENT

82

CONCLUSIONS AND NEXT STEPS

91

REFERENCES

92

APPENDICES

94

Appendix I Operational Directive

96

Appendix II Level of Service

97

Appendix III Service Matrix and Alberta Fire Services Core Competency Framework Tool

98

Appendix IV Recruitment and Retention Initiatives

104

Appendix V Recommendations

106

Appendix VI Level of Service Options

113

2 | Page

LETTER OF TRANSMITTAL Troy Gautreau, Fire Chief / Deputy CAO Town of Grand Bay-Westfield PO Box 3001 Grand Bay-Westfield, NB E5K 4V3 Re: Town of Grand Bay-Westfield Fire Services Review

Dear Troy, We are pleased to present the Grand Bay-Westfield Fire Services Review Final Report and Recommendations.

Over the past four months we have completed a comprehensive review and analysis of the region’s fire department, its governance, service levels and financials. We developed a series of recommendations for the Town of Grand Bay-Westfield’s Fire Rescue Services to increase the efficiency and effectiveness of the Department, minimize risk and maximize the fire services provided throughout the region.

Should you have any questions or require further clarification on any of our recommendations, please do not hesitate to contact us or request a meeting to review the recommendations.

We feel we have captured the intent and the objectives of your original request for proposal and invite comments on the attached report.

Respectfully,

Erica Thomas President, TSI

3 | Page

ACRONYMS AHJ CAO CRA CRR ERF EMP EMS FC FD FMP FTE FUS GBW GBWFRD GSAR KPI LGA LOS MA/A MAFCP MFR MGA NFPA NBTMR OFC OHS PPE SCBA SME SOG SOP SWP TSI WHSCC WHMIS WUI

4 | Page

Authority Having Jurisdiction Chief Administrative Officer Community Risk Assessment Community Risk Reduction Effective Response Force Emergency Management Plan Emergency Medical Services Fire Chief Fire Department Fire Master Plan Full Time Equivalent/Employee Fire Underwriters Survey Grand Bay-Westfield Grand Bay-Westfield Fire Rescue Department Ground Search and Rescue Key Performance Indicator Local Government Act Level of Service Mutual Aid/Agreement Mutual Aid Fire Control Plan Medical First Responder Municipal Government Act National Fire Protection Association New Brunswick trunk mobile radio system Office of the Fire Commissioner Occupational Health and Safety Personal Protective Equipment Self-Contained Breathing Apparatus Subject Matter Expert Standard Operating Guideline Standard Operating Procedure Safe Work Practice Transitional Solutions Inc. Workplace Health and Safety Compensation Commission Workplace Hazardous Materials Information System Wildland Urban Interface

EXECUTIVE SUMMARY Transitional Solutions Inc. (TSI) is pleased to present a Fire Services Review report for the Town of Grand Bay-Westfield. We would like to sincerely thank the Town and Fire Services staff from all the partner organizations, who gave their time and expertise freely during the ongoing consultation and research phases of this Service Review. Our discussions with the fire service providers’ administration, staff and volunteers were always candid, respectful, and productive.

The Town of Grand Bay-Westfield is a dynamic east coast oceanside suburban community of Saint John, New Brunswick with just under 5,000 residents living in diverse and beautiful landscapes. With the St. John Riverbanks paralleling the Town and the surrounding open spaces the Town of Grand Bay-Westfield is truly picturesque.

An economy based on fishing, agriculture, and gas, provides great business, employment, and active living opportunities. The Town of Grand Bay-Westfield is also home to a vibrant arts and culture scene. Major transportation corridors, including docks, Highways 7, 177 and 102, and a rail line allow for the efficient movement of goods and services.

By way of contracted fire-rescue services the Grand Bay-Westfield Fire Services expands their service area responsibilities to include the neighbouring Local Service District of Westfield West. This extension of services adds a duty to provide service to an estimated additional 1,500 residents and the associated infrastructure.

The expectation of the Town of Grand Bay-Westfield Fire Services Review is that it will provide guidance and ensure that the area's fire service provider is well positioned in achieving a world-class fire service.

We wish to again express our appreciation to the Town’s Council, Administration and fire personnel for their participation, cooperation, and assistance throughout the project. Without open and honest input from all parties it would not have been possible to gain such a detailed understanding of the organization.

The Grand Bay-Westfield Fire Services has the administrative structure and support in place to provide for a broad fire service delivery system throughout the Grand Bay-Westfield boundaries including their service area responsibilities to neighbouring Local Service District of Westfield West. TSI determined that there is a significant strength to note; in that there is very strong support from Town Council, coupled with warm community advocacy/endorsement that should be leveraged by the department to continue to perpetuate excellence in the department.

5 | Page

The second, and not surprising, strength of this department is the people who function as responders and leaders. There is a definite commitment from all these fine people to protect their neighbours, friends and family.

As is usually the case with these types of reviews, TSI found that overall operational Fire Services in the area are delivered by honourable volunteers in a fashion that meets the rudimentary communities' needs. The review did uncover areas of concern and areas of opportunity that need attention to ensure the fire services in the region are delivered safely and efficiently. In addition, areas of opportunity existed in core spaces, such as joint training, fire prevention initiatives and a desire to improve services to the community.

In this report, TSI makes 63 recommendations to support fire service delivery for the Town of Grand Bay-Westfield. Key recommendations are included in each section and there is a summary of all recommendations in the Appendices.

The Grand Bay-Westfield Fire Services has the administrative structure and support in place to provide for a broad fire service delivery system throughout the Grand Bay-Westfield boundaries including their service area responsibilities to neighbouring Local Service District of Westfield West.

TSI determined that there is a significant strength to note; in that there is very strong support from Town Council, coupled with warm community advocacy/endorsement that should be leveraged by the department to continue to perpetuate excellence in the department. Of note was the strength of the people who function as responders and leaders. There is a definite commitment from all these fine people to protect their neighbours, friends and family.

This is a strong, healthy department and that is reflected in the support from Administration, Council and the community. The leaders are capable and respected by the dedicated volunteers of the department and Town.

6 | Page

SUMMARY OF RECOMMENDATIONS Governance and Administration 1. A complete review of By-law No. 118 be conducted to reflect a Level of Service Policy and that the Level of Service Policy be contained in an appendix to the By-law.

2. The role of Fire Prevention Officer be defined in the revision of By-law No. 118. A suggestion could be: The role of Fire Prevention Officer will include the duties and responsibilities of creating and maintaining the Fire Prevention Program, which includes inspections and enforcement of the Fire Prevention Act as conferred by the Fire Marshal. For the purposes of this by-law the Fire Chief will act as the Fire Prevention Officer.

3. Further include the following definitions within the definition section of the by-law: 5(3). Gas Fire Pits (Campfire Effect Units) which are designed to operate with propane or natural gas, are intended for outdoor use only, not for food preparation, and that are ULC and CSA approved are permitted provided they are supervised at all times, and operated in accordance with manufacturer's instructions in a safe manner and location away from combustibles.

5(4). In this section: a) “outdoor wood burning appliance” or “outdoor fireplace” means a manufactured non-combustible enclosed container designed to hold a small fire for decorative purposes and the size of which is not larger than one (1) meter in any direction, and may include, but not limited to, chimneys. b) “personal outdoor fireplace” means a hand-made, non-combustible, enclosed container which may include some or all of the components of an outdoor wood burning appliance and has been approved by the Fire Chief or designate.

4. An annual review of the fire by-law be conducted by the Fire Chief to ensure it reflects the risks and needs of the community and that the fire service remains within the level of service identified by Council.

5. Formalize the relationship between the Grand Bay-Westfield Fire Rescue Department and the Saint John Fire Rescue Department through a Mutual Aid Agreement, either with Saint John exclusively, or with Saint John and other Municipalities in the area surrounding Saint John.

6. The Chief adopts one form of Operational Directive to communicate any command decision, change or addition to any fire department documents, either interim, short, or long term. All directives should be kept in an accessible place for personnel to reference. Additionally, a system be implemented to review the directives annually to either delete them or move them into a more permanent document.

7. A review of the Standard Operating Guidelines to ensure they reflect the Level of Service Policy, set clear, concise direction based on the Vision, Mission and Values and meet the provided standardized framework.

8. Move the two documents titled Firefighter Crew Assignments, and Scene Organization into procedures contained within an SOGs in the Operation section 600.

7 | Page

9. Separate section 400 out of the OHS section and create a Driver Operator section of the SOG’s, conversely the Driver Operator section could be contained in an Operations section.

10. In addition to the other statutes written in section 400 that it should include the federal Traffic Safety Act. 11. Regular annual reviews of all Fire Department documents be completed to reflect any changes in the fire service or guiding documentation i.e., NFPA changes and updates. Additionally, the review of the documents will facilitate an opportunity to move Directives that may have been issued throughout the year into an actual Guideline, Procedure, or Policy, or to remove them completely if no longer relevant.

12. Create a Policy manual for the SOGs contained in SOG 100.0 - 204.1, specific to the management of Personnel, discipline, job descriptions, honorariums, and code of conduct. Conversely the SOGs contained in SOG 100.0 - 204.1 could be added into the Corporate Policy Manual in a Firefighter Policies section.

13. Support the firefighter being disciplined, in being offered an opportunity to provide written comment on the documentation contained in the file.

14. Allegations of any form of misconduct should automatically be documented and considered for investigation.

15. Given the severity of the misconduct any and all steps contained in SOG 100.5 can be skipped, and dismissal from the Department may result.

16. Create a Policy Manual to manage the organizational structure and personnel management.

17. Guidelines are reframed to include Procedures, in a identified Procedures Section within the framework of those Guidelines.

18. Examine the many SOG’s through the lens of what is absolutely necessary to give clarity and direction on, and what is something that can be managed with discretion, at scene, on the fire ground.

19. TSI recommends continuing to utilize the training available to them to train their personnel in the use of the record management software. The training should be tailored to meet the learning needs of the officers and firefighters alike.

Fire Rescue Operations 20. The Town develop a new Level of Service document that will serve as the foundation of fire and rescue services provided by the GBWFRD to the residents of Grand Bay-Westfield and the adjacent Local Service Districts.

21. Internal guidelines, procedures or protocols be created for minimum, or maximum staffing requirements, for response to all services requiring a physical response, specifically those services that are high priority or time sensitive, and that these protocols are shared as part of the training program with all staff.

22. A review of Grand Bay-Westfield’s geographic and municipal make-up to determine the most appropriate designation for municipal demand zone (Urban, Suburban, Rural, Remote) in order

8 | Page

to determine which NFPA Standard (NFPA 1710 or NFPA 1720) best applies to the community and response area.

23. GBWFRD consider, as a medium to long range initiative, the creation of, or a review of all dispatch and response protocols to ensure they are aligned with the LOS policy.

24. GBWFRD develop, as a medium- or long-term initiative, a standard of cover for all critical response types.

25. In the medium term, the consideration of relay pumping as an alternative to water shuttles to increase efficiency and safety at significant fire events.

26. As part of medium to long term planning, that the evaluation and replacement strategies of Rescue 5 and CAR 3 include that consideration be given to the use of a heavier chassis suitable for use with a skid unit designed for rapid attack of grass, wildland and WUI fire events.

27. An increased inventory of high-volume supply hose be considered to accommodate the possibility of relay pumping, as an alternative to tanker shuttles for uninterrupted water supply to major fire events.

28. The review of, or establishment of a mutual aid agreement with the City of Saint John to supply or gain access to aerial ladder or aerial tower apparatus should an event require elevated fire streams, emergency access to inaccessible rooftops or rescue of persons from multi-story occupancies.

29. Explore the possibility of improving collaboration with agencies capable of providing water rescue services with the goal of establishing a co-response initiative that would be effective and meet GBWFRD expectations and operational goals in providing water rescue services.

30. The locations of both fire stations remain unchanged in the long term. The only exception would be if there was a future desire by Council to relocate a fire station on available land with, or with the potential of, a permanent year-round unlimited water supply.

31. Medium term planning consists of a feasibility study to renovate Station 1 in order to provide more usable apparatus floor space.

32. Long term plans for Station 2 include taking over the entire building to allow increased space for apparatus and offices.

33. Medium to long term planning for the addition of more suitable shower facilities at both fire stations.

34. The development of mandatory inspection, regular testing and maintenance procedures required for the primary water supply sites (in GBW and LSDs), that involve or require any form of mechanical assistance (pumps) for use.

35. As part of medium range strategic planning (3-5-yrs and beyond) GBWFRD Administration, CAO and Council review the 2015 Fire Fighting Water Supply Plan - Dillon Consulting, to aid in establishing priorities to improve access to new or additional water sources, in order to increase the quantity of water available in support of firefighting operations.

36. GBWFRD consider long term initiatives for building greater capacity in fire prevention and education in hopes of establishing a local fire prevention and public education program as a commitment to enhance protection of the community, the public and its most vulnerable residents.

9 | Page

37. GBWFRD build capacity in the field of fire investigation through the empowerment of interested Department Personnel.

38. Development of Pre-Fire Planning of target hazards, critical infrastructure and special occupancies as part of the Fire Prevention Portfolio, and that the plans be designed in a way that allows access to information for responding crews.

Human Resources 39. Each of the Lieutenants have an assigned group of firefighters (Platoon) that they are responsible for, in order to provide reporting clarity for the members.

40. An event be created that would allow Council to meet the firefighters and possibly participate in simple daily activities the firefighters undertake.

41. Further training on the basics of Exterior Attack in accordance with NFPA 1001 (2019) FF 1; 4.3.1, 4.3.8. 4.3.10, 4.3.13, 4.3.14, 4.3.15 and include the Job Performance Requirements (JPR’s) listed in the Standard to ensure confidence in all members ability to complete Exterior Attacks.

42. Live fire training is refreshed annually and should be offered to all members of GBWFRS who are minimally NFPA 1001 level 1 certified, and should follow NFPA 1403.

43. The Training Officer position achieve additional certification in the following NFPA standards: a. NFPA 1500 (Firefighter Department Occupational Health and Safety), b. NFPA 1006 (Standard for Technical Rescue Personnel Professional Qualifications), c. NFPA 470 (Hazardous Materials Standards for Responders).

44. The Training Officer position help deliver the weekly and any additional training provided to the Volunteer firefighters.

45. The Training Officer Job Description be updated to reflect the additional suggested duties and qualifications.

46. A yearlong training plan be developed that includes pre planning and familiarization of larger buildings.

47. Real time scenario-based training be implemented for some of the training events.

48. Medical training take place at least once a month as it is the leading call GBWFRD responds to, this would also be a great opportunity to integrate real time scenarios.

49. The creation of a performance management system which includes an annual performance review be created and implemented.

50. Ensure all job descriptions are the same in all documents.

51. Create a job description for the volunteer district chiefs identified in the Organizational chart but missing in the SOGs job description.

52. Develop Officer training programs, and ensuring all officers receive ongoing training.

53. Create of a section in the SOGs specific to OHS requirements. The OHS section should include; a. a Hazard Assessment created for each position on the FD i.e. Chief, Deputy Chief, District Chiefs, Captains, Lieutenants and Firefighters, specific to all hazards of firefighting including training and work on the fire floor, that ensures the hazard is managed by the hierarchy of control.

10 | Page

b.

a Respiratory Code of Practice as outlined in the OHS Act using CSA Z94.4-11 to ensure proper adherence to regulations. c. Frequency for FIT testing of all firefighters wearing SCBA in accordance with CSA Z94.411 Standard.

54. SOGs should include standard checks on all equipment in the fire service and documentation on the standard check frequency, maintenance and repair should be created.

55. The PPE of the firefighters be cleaned professionally after every exposure to fire and fire residue as well as any pathogen exposures (i.e. blood, bodily fluids) or at least annually.

56. Keep complete records of all cleaning and repair done to the PPE for the life of the PPE. 57. Amend SOG 405.1, 3. B. to say that “No alterations shall be made to the PPE, unless professionally done.”

58. GBWFRD create a procedure that includes regular decontaminating of all fire gear.

59. TSI recommends that as a first step towards a clean cab policy, GBWFRD adopt a clean cab initiative which involves cleaning the equipment used at fires and ensuring that the interior of cabs are washed and decontaminated prior to the next call.

Budget and Financial Management 60. The Town should create cost centres for each fire hall. The cost centre budget should be created with individual accounts and backup for each budget amount.

61. The Town should develop an operational equipment replacement plan. The equipment inventory shows there are 652 individual pieces of equipment that the fire hall uses. An operating fire reserve could be set up to fund the future replacement of major equipment such as turnout gear and SCBA equipment.

62. The Town should create a capital fire equipment replacement reserve. A capital contribution to reserve should be budgeted in the amount of $193,333.

11 | Page

BACKGROUND & METHODOLOGY Background TSI was hired in late June 2022 by the Town of Grand Bay-Westfield to review current standards, operations and infrastructure of the Town of Grand Bay-Westfield Fire Service (GBWFS) and develop a report with recommendations for consideration to improve services to the region. In addition to the Service Review the Town was also looking for the development of a Ten-Year Strategic Plan that considers the current, future and constraints of the Town.

TSI approached this project in a way that centred on principles of sustainability and responsible service provision and aimed to objectively assess service levels of the fire service and identify areas of strength and opportunities to create efficiencies in Town of Grand Bay-Westfield Fire Service’s services cadre.

Having previously worked on multiple regional and municipal fire and emergency projects, the TSI team understood the need to identify key drivers and common goals for all stakeholders up front and maintain ongoing communications to ensure a final product that will not only meet and but exceed the needs of the region. We carried out a four-phase project work plan that considered all stakeholders and employed best practices in fire service delivery and governance.

A thorough review of existing documents was performed to understand the current operations of Grand Bay-Westfield Fire Service. This review included the examination of any current and previous processes, procedures, plans, programs, guidelines, studies, reports, budgets, by-laws and agreements in place to identify: ●

Operational practices and procedures;

●

Best practices and potential gaps;

●

Service levels, resourcing, planning, and delivery models;

●

Records Management (training, equipment, maintenance and incident reporting);

● ●

Fire Call Incident Reports; Personnel Statistics;

●

Training Programs and Documentation/Records;

● ●

Fire Inspection and Investigation; Fire prevention and public education and awareness initiatives

●

Human Resources;

●

Financial resourcing;

●

Municipal Statistics;

●

Mutual Aid Agreements;

● ●

Mutual aid arrangements; and OH&S practices

● ●

Policies / By-laws and SOP’s; Risk & Hazard Assessments;

●

Apparatus and Equipment;

●

Fire Hall location, use and capacity;

12 | Page

Background research was also completed on legislation, regulations, guiding documents, and best practices offered through industry knowledge, experience, insight, and identified best practices and constraints in communities of similar size. Much of this best practice research can be done in our own files through projects we have completed across western Canada, looking at what worked and where the challenges are. Detailed information about these findings and recommendations can be found in the analysis sections of each of the specific focus areas.

At the time the TSI team was retained for these services, the Town of Grand Bay-Westfield intended to find ways to assist in identifying issues, priorities and opportunities in the strategic provision of fire services and to define the appropriate levels of service for the Municipality.

The overarching goal was to develop a clear overview that would allow fire services, Administration and Council a better understanding of the current state of the fire service. The TSI team worked with the Town of Grand Bay-Westfield and Grand Bay-Westfield Fire Service to balance the needs, wants, and expectations of all stakeholders and distil this information into a series of recommendations to enhance fire services and futureproof the Town.

TSI’s review and recommendations are grounded in an understanding of the current operational framework, practices and organizational chart.

TSI appreciates that the ultimate goal of this initiative is to ensure the Town of Grand Bay-Westfield Fire Service delivers fire services that balance needs based on risk all the while providing a sense of safety and security that resonates with all residents.

Risk balanced with safe, effective, efficient, relevant and financially sustainable services, that set the region up as a desirable place to live, recreate and for businesses to thrive.

The initial risk assessment showed that the Town of Grand Bay-Westfield and surrounding municipal lands face the same hazards that many other municipalities across Canada face. However, there are a couple of unique differences posed by the river that borders it and a rail line that separates the response boundaries of the municipality. These two elements identified by TSI are shown to be a challenging environment for the Grand Bay-Westfield Fire Service to navigate. TSI has provided recommendations on how to address these concerns.

The components of the Town’s/Fire Service’s budget were examined carefully so as to identify efficiencies and opportunities to move the fire service forward successfully. This was done with the following goals in mind: ● ●

Comment on and recommend changes to existing budgets and budgeting processes where required; Ensure the budget is and will continue to be accurate to allow the department to function at a high level with no worries of significant shortfalls; and

13 | Page

●

Meets the tolerance of risk and the service levels set out by Council.

Budget assumptions were identified based on industry standards, best practices and current costs identified in the Town’s budget. A budget summary, as well as a detailed breakdown of budget line items are included in the Report. TSI is recommending the creation of fire reserves to fund significant operational equipment and capital fire apparatus.

Finally, TSI reviewed all the operational programs that make up the fire service. This included: ● ● ● ● ● ● ●

Administration and governance; Prevention including inspections, public safety, and investigations; Response efficiency and effectiveness; Documentation and record keeping; Maintenance and planning for vehicles and equipment; Training; and Key performance indicators.

A recommended 10 Year Strategic Plan and implementation strategy is provided in the report. It is organized by phases in accordance with the recommendations to ensure the governance and organization is in place so that operations, training, capital and upgrades can commence in a reasonable and efficient timeframe.

The recommendations developed give consideration to ensuring that the positive aspects of the Town’s culture and operations are not overlooked, undervalued, or threatened. These recommendations aim to improve effectiveness, efficiency and responsiveness in service provision, and identify cost savings, human resourcing requirements, staff capabilities, and systems for accountability. In addition, TSI looked for any opportunities that will increase collaboration, reduce duplication, and clearly delineate roles and responsibilities.

14 | Page

Stakeholder Engagement A key component to ensuring all voices were heard and staff felt engaged in the review process was consultation with members of Council, civic Administrations and the Fire Service leadership team and members. TSI completed a two-part engagement process including an online survey and in-person or virtual/phone interviews. There was a high rate of response and very good participation in the interviews and the survey. This approach provided TSI with excellent information to guide the direction for further F investigation, research and analysis. i g u At all times, TSI was highly cognizant of the r need to have all information shared e

anonymously. Therefore, no specific feedback has been tied to staff or volunteers' names. In addition, those interviewed were also guaranteed anonymity to protect the integrity of the data collected and help individuals feel more comfortable in sharing information about the GBWFRD's operations and their roles.

Surveys & Interviews TSI visited Grand Bay -Westfield and after some initial introductions and interviews the project ramped up with a workshop which included all fire personnel of the GBWFRD which was followed with a survey being sent to the same members to facilitate individual viewpoints and feedback. We received 18 responses to the survey and conducted 13 interviews. Survey questions were developed to identify current perceptions of the strengths and weaknesses of the GBWFRD at all levels of the organization.

In addition to the surveys, confidential interviews were completed with the Fire Chief, Deputy Fire Chief, full time Training Officer, CAO, Mayor, members of Council to further explore their thoughts and gain more insights into the perceptions of GBWFRD. The interview sessions were rounded out with the interviewing of a representative from the Public Communication Centre.

Following our engagement and analysis of internal structures, processes, and policies and

15 | Page

looking at the people and their roles, we have come up with an analysis that will provide an opportunity for efficiencies in the current processes and improvement to meet the future needs of the Department.

The project contacts were also constantly consulted by the TSI team to better understand various departmental operations and provide further information or clarification. Survey and interview responses received were aggregated, and TSI developed overarching themes.

In addition to the interviews and survey TSI undertook to hold an in-person workshop with the entire membership of the GBWFRD which yielded great discussion and insight into the Department's strengths, weaknesses, opportunities and threats. Greater detail on the SWOT analysis can be found later in this report.

SWOT Analysis Informed by desk research, stakeholder consultations and analysis, TSI performed an in-depth SWOT analysis on the Grand Bay-Westfield Fire Service. During the SWOT Analysis, TSI identified several attributes that are working well, where improvements are needed, opportunities for success and potential risks to the organization that could arise from inefficiencies or gaps in service delivery.

While onsite TSI conducted interviews with Council members, the CAO, Fire Chief and Administration as well as other key stakeholders. A workshop was conducted with the entire membership of the GBWFRD to conduct a SWOT analysis during which the membership keyed on and identified the Department's strengths, weaknesses, opportunities and threats.

Much of the information garnered by the SWOT analysis was consistent with the information gathered during the interview process. In a few cases it also included information that was more pertinent to the Town than the fire department and that was okay.

Key messages garnered from the SWOT analysis included the fact that high staff numbers were considered to be a strength. Fire service provision is labour intensive and having appropriate staffing levels is critical to providing adequate emergency services. Also of great importance was the recognition of a positive culture within the department which is likely directly related to successes in recruitment and retention of staff, a note that the people are helpful, members feel that they are part of a team and that the FD is considered a second family. These attributes also reflect on current leadership and the nurturing of an inclusive and respectful workplace and environment. Notably, training was considered a strength, as was the presence of full-time staff. Membership also felt that they were actively involved in and valued by the community.

Safety was considered as both a strength and weakness. It is TSI's belief that working safely is a top priority of the GBWFRD, however there was mention that safety as it pertains to training could present an opportunity for improvement.

Identified weaknesses addressing gaps in operational issues, such as coverage during summertime long weekend and weekday staffing are significant concerns, as is water supply. Another operational

16 | Page

weakness which was identified by the rank and file and was discussed regularly during engagement was that of ice and water rescue. Organizationally, internal communication challenges and accountability of staff were noted. Senior staff identified the fact that staying engaged and the threat of complacency was a weakness for them.

Threats included several key subjects, but water supply, added by TSI as a threat, is of major concern to operational stability and safety in fire suppression. TSI identified that GBWFRD Administration seemed to downplay water supply and wildland/forest fires as threats, where the rank and file expressed real concern in these areas. The threat of “no clear reporting” speaks to potential challenges in organizational structure and lack of functional cohorts where all staff understand who to report to.

The upside of the SWOT analysis is the realization of opportunity. There are many opportunities to identify, address, and prioritize solutions to the weaknesses and threats within the organization. Thoughtful consideration being given to the SWOT analysis allows for the potential to launch a mindset of continuous improvement for the Department which will improve conditions and resolve issues.

A summary of the Strengths, Weaknesses, Opportunities and Threats (SWOT) analysis completed for the Grand Bay-Westfield Fire Service is shown on page 18.

17 | Page

18 | Page

Community Risk Assessment A Risk Profile justifies all aspects of Fire Service, including service levels, management, operations, station location, apparatus, equipment, recruitment, training, and response. It also promotes officer development, teamwork and trust between Fire Administration, staff, and community. Understanding the department and community risk profile, assessing the risks in context with risk tolerance, then developing mitigation strategies that are monitored and intentionally managed increases the risk maturity of the collective region.

Risk Profile Grand Bay-Westfield Building Stock

➢ GBW consists of approximately 2000 households/dwellings ➢ 85% of which are Single detached homes. ➢ majority of the remaining 15% is low/mid-rise apartments ➢ The Local Service District: approximately 500 households/ dwellings ➢ Assumption: believed to be nearly 100% single detached homes

Critical Infrastructure

➢ 1 Municipal office ➢ 2 Fire Stations ➢ 3 Public Works facilities ➢ 1 Sewerage facility

Demographics

➢ Town population approx. 5000 ➢ LSD population approx. 1500 ➢ 20% of population is less than 15 years of age ➢ 20% of population is over 65 years of age ➢ 60 % of population is between 15-65

Community Services

➢ Our community consists of: ➢ 2 Special Care homes for Seniors ➢ 1 Apartment building of 25 units for independent senior living ➢ 3 Gas Stations ➢ 1 Hardware store/Lumber Yard ➢ 20-25 small businesses (Restaurants/Professional offices, etc.) ➢ 4 Schools ➢ 3 Pre-schools ➢ 6 Churches

Water Source

➢ Station 1 ➢ 2 underground tanks installed 2001 ➢ 8,000 Gal & 5,000 Gal ➢ Filled naturally via underground spring. ➢ 200 GPM pump used to refill fire apparatus

19 | Page

➢ Morningside Crescent ➢ 2 underground tanks installed 2007 ➢ 10,000 Gal & 8,000 Gal ➢ Filled via deep well submersible pump. ➢ 200 GPM pump used to refill fire apparatus ➢ Natural pond with man-made containments to minimize outflow. ➢ Filled naturally from brooks flowing towards SJ river. ➢ Typically contains 20,000-30,000 gallons of water. ➢ 400 GPM pump to refill fire apparatus ➢ Pump station with new pump built in 2010

Risk Framework

Figure 1 - Institutional Risk Maturity Spectrum

Risks, hazards, threats, and vulnerability are terms that are often confused with each other. A clear understanding of each of these principles is necessary to apply assessment criteria to occupancy or region: ●

20 | Page

Risk is the potential for loss, damage, or destruction within the MD that we are trying to protect because of a threat exploiting a vulnerability. It is the intersection of assets, threats, and vulnerabilities. Risk is often expressed in terms of a combination of the consequences of an event (including changes in circumstances) and the associated likelihood of occurrence (ISO, 2009).

●

Hazards are events or physical conditions that can cause fatalities, injuries, property damage, infrastructure damage, agricultural loss, damage to the environment, interruption of business, or other types of harm or loss—generally categorized as natural, biological, technological, intentional, and terrorist (FEMA, 2013).

●

Vulnerability is considered a weakness or gap in our fire protection that could be exploited by threats or gaps in our fire protection that compromises our communities and public safety. These are intrinsic properties of something resulting in the susceptibility to a risk source that can lead to an event with a consequence (ISO, 2009).

●

Threats are anything that can exploit a vulnerability, intentionally or accidentally, and cause harm, damage, or destroy an asset. Threats could be actual, conceptual, or inherent. A threat is what we’re trying to protect against (Public Safety Canada, 2017).

A risk and vulnerability assessment identifies and gives Fire Services the ability to recognize threats or hazards and the probability or potential that these factors will exploit a vulnerability, or gap, in your protection and result in a threat, event, exposure, disaster or some form of loss.

Generally, a matrix is used to determine the probability and potential consequences of the hazard.

Regular reviews of risk and vulnerability within the municipality, including target hazards, should occur annually or, by some manageable schedule, as assigned by those organizations designated through governance, by-law, or as delegated by Fire Services Administration. As completed using a Threat Hazard Identification Risk Assessment (HIRA or THIRA), a sample matrix is provided in Figure 16. This data clarifies all stakeholders to appreciate where the most significant risks exist so that risk treatments can be applied most effectively.

Figure 2 - Sample THIRA Risk Matrix (Ontario Emergency Management, 2012)

21 | Page

The Town of Grand Bay-Westfield and region is no less vulnerable to risks and hazards than other communities. The only avenue to address each type of risk or hazard that can occur or has happened within the region is to anticipate and prepare for such an event. An example would be overland flooding or freshet.

These events are anticipated and can be mitigated before they happen or may be planned for so that resources are in place should an immediate response be required. Fire Services commonly use a seasonal approach to natural hazards. The challenge is to expand the scope to include all types of risks and hazards. To assist with risk and vulnerability, the Town of Grand Bay-Westfield Fire Services should implement a pre-incident planning program that would consist of all Town of Grand Bay-Westfield Fire Service regional partners and the risks identified for their specific areas. Using industry-standard risk assessment tools and establishing a systemic pre-planning methodology will support these efficiencies.

Figure 3 - Systemic Pre-Planning Risk Assessment (TSI, 2020)

Values at Risk FEMA created Community Lifelines in 2017 to reframe incident information, understand and communicate incident impacts using plain language, and promote the unity of effort across the whole community to prioritize efforts to stabilize the lifelines during incident response.

Community Lifelines provide a common lens that all responders can use to assess whether critical lifesaving and life-sustaining services are at risk or disrupted and, if so, which core capabilities are required to provide those services. A lifeline enables the continuous operation of critical government and business functions and is essential to human health and safety or economic security. Lifelines were developed to support response planning and operations.

22 | Page

Table 1 on page 24 identifies critical community lifelines throughout the region that trigger or become compromised because of an unplanned event and require additional considerations when considering risk assessment, risk treatments, and subsequent service levels.

Keeping what is at risk top of mind can put pre-incident planning into perspective. Impacts to community lifelines and critical infrastructure, including hospitals, schools, recreational or municipal facilities, can be devastating to a community and its ability to provide essential services. Pre-incident planning is not required in defining a Level of Service but should be included as a component of Fire Service functions.

After understanding the risk, the hazards and the values at stake, the next step is to understand the most appropriate methods of mitigating the risks for the community are. The risk tolerance of the region will drive the considerations about which and how many layers of protection to apply. This consideration will take into context budget, capacity and capability.

23 | Page

Table 1 - Town of Grand Bay-Westfield High-Risk Sites

COMMUNITY LIFELINE

HIGH-RISK SITES IDENTIFIED (VALUES AT RISK) Cellular phone infrastructure NBTMR infrastructure

Critical infrastructure Electricity Critical infrastructure: Water Public works Agriculture Manufacturing facilities Sewage Product on rail and highway

EMS Seniors residences

Schools Recreational: golf courses Governance, administration, and infrastructure buildings

Roadways Railway

24 | Page

Regional Hazards Through our time invested in the Town of Grand Bay-Westfield during the Summer of 2022, it was learned that the Town of Grand Bay-Westfield Fire Rescue Department faces a variety of hazards throughout the region involving the following hazard types shown in Table 2.

Table 2 - Risks & Hazards of Town of Grand Bay-Westfield Hot Zones

Hazard Type Natural Hazards (FEMA) Biological, Extra-terrestrial, Geophysical, Hydrological, Climatological, and Meteorological

Biological Hazards (Centre for Research on Epidemiology of Disasters) Human Epidemics and Pandemics; Animal and Livestock Epidemics; Plant and Agricultural Epidemics; Bacterial Outbreaks; Insect Infestations; and Animal Toxins and Vectors.

Technological Hazards Infrastructure hazards; Industrial hazards; Transportation hazards; and Structural fires and failures.

Power Failures; Telecommunications System Failures; Computer Network Failures; Critical Water or Sewer System Failures; Major Gas Disruption Line (Main) Breaks; Food Shortages; Overburdened Public Health Facilities; and Economic Failure.

Intentional Hazards (FEMA, 2013) Civil Incidents; Criminal Acts (violent & non-violent); Cyber Attacks; Chemical, Biological, Radiological, Nuclear, and Explosive (CBRNE) Materials; Terrorism; War, Humanitarian Crises; and Complex Humanitarian Emergencies

25 | Page

Regional Hazards A potential incident resulting from acts of Nature: ● Severe weather ● Hurricane ● Damaging winds ● Ice storms ● Blizzards ● Wildland fires ● Overland flooding-Freshet ● Infectious disease outbreak ● Pandemic

Hazards that result from failures in the physical things humans have made. There is no question that human activity is the major contributing factor. Infrastructure hazards are the potential failure of processes, systems, facilities, technologies, networks, assets, and services essential to health, safety, security, or economic well-being. ● Train derailment ● Boats-water incidents ● Loss of containment ● Bridge compromise ● Motor vehicle collisions These hazards do not result from negligence, oversight, or Mother Nature. A potential incident resulting from the intentional actions of an adversary. ● Explosions ● Civil unrest & disorder ● Blockade of major roadways ● Violent acts/terrorism/cyber attack

Regional Vulnerabilities Known vulnerabilities which can hamper the region’s ability to mitigate risks: Lack of volunteers’ availability on summer weekends and during the week day Access to water in the winter Geographical challenges, steep roads, rivers and lakes

From a risk perspective, the Town of Grand Bay-Westfield Fire Services is no different from most municipalities in that it struggles with volunteer firefighter recruitment and retention. It, therefore, is vulnerable in terms of trained personnel being available to respond at all times of the day.

All-Hazards Risk Assessment and Management The use of an all-hazards approach in coordination with pre-incident planning focuses on developing capacities and capabilities that will minimize harm, personal injury and the loss of assets or property. It also promotes public safety. It takes what seems like a monumental task and eases it into a scalable, manageable plan to mitigate the hazards and risks.

Current and future risks can be identified using planning and development tools married with the inclusion and input from the multiple fire service providers tasked with fire prevention and response in the process. This approach allows for collaborative expertise in planning and development to ensure fire prevention best practices, such as access to apparatus and water supply capacities, are utilized and identified early in the building and development process. It also ensures that proper fire prevention and mitigation systems will be in place. This process would additionally provide adherence to both building and fire codes. It also allows the municipal district to access the services of a Fire Protection Engineer for large industrial and commercial projects outside of the scope of Fire Administration.

Public Safety Canada has a practical risk assessment and planning tools available to conduct all-hazards risk assessments. A risk-rating matrix allows for decisions about which risks need treatment and the priority for treatment implementation. The comparison is made based on likelihood and impact estimates to prioritize risks. The risk-rating matrix plots the likelihood on the x-axis and the impacts on the y-axis. Then, by measuring those components of risks, a clustering of risks can be shown, which helps establish acceptable or intolerable risk levels leading to decisions on priorities. Risk treatments can then be applied to develop, select, and implement controls to eliminate or mitigate risks. The all-hazards risk assessment process can be used within the Fire Services as a proven methodology to incorporate risk assessment, pre-incident planning and response activities.

26 | Page

There are numerous risk assessment tools available to the Fire Service. Public Safety Canada provides an All-Hazards Risk Assessment Methodology & Guidelines publication to support risk assessment activities.

Figure 4 - Risk Assessment Matrix Infographic

27 | Page

RESEARCH FINDINGS and OBSERVATIONS

28 | Page

GOVERNANCE & ADMINISTRATION Governance establishes relevant and transparent accountability in decision-making processes to align direction and guide actions. This is done through by-law and policy. Grand Bay-Westfield has the administrative structure to provide fire protection services for their community. They have appropriate roles and responsibilities to provide support for all operations.

Fire By-law No. 118 Volunteer Fire Rescue Department By-law was last updated in 2016. Section 3 outlines the expectations of the fire service as such; A department for the Town of Grand Bay-Westfield to be known as the Grand Bay-Westfield Volunteer FireRescue Department is hereby established (and continued) for the purposes of preventing and extinguishing fires, protecting property from fire, assisting other agencies such as Police, Emergency Measures Organization, Department of Natural Resources, Ground Search and Rescue and Ambulance with the provision of Non-Fire Related Rescue services and the head of the Department shall be known as the Fire Chief who shall also act as Fire Prevention Officer.

Under definitions the by-law defines “Non-Fire Related Rescue services as; Non-Fire Related Rescue" means the provision of automobile extrication, ice rescue, remote rescue, emergency first aid or such other services of an emergency nature, not under the threat of imminent fire, which the Fire Chief determines that the Department is capable of providing from time to time.

Therefore, as outlined in the By-law the Department will; ● ● ● ●

prevent and extinguish fires, protect properties from fire, work with other agencies and, perform non-fire related rescue services.

The list of services is broad in nature and probably by design in order to accommodate any emergency response that Council wasn’t aware of or born out of the desire of Council to robustly support fire services in its area. Contrary to the by-laws implied intent it would greatly help the Fire Chief to understand and anticipate the needs and expectations of Council, it is recommended that the By-law be more precise in identifying its actual Level of Service delivery that Council authorizes the Fire Service to provide. Prevent and extinguish fires means something very different to firefighters than Council, town administration and members of the community. To provide clarity not only to the Fire Service but to the community, it is critical to define each expected level of service. In turn this will enable the Chief to accurately determine additional factors in service delivery including equipment, apparatus, personnel, training, and both capital and operational budgeting considerations.

1. TSI recommends a complete review of By-law No. 118 be conducted to reflect a Level of Service Policy and that the Level of Service Policy be contained in an appendix to the By-law.

29 | Page

While By-law No. 118 3.0 above identifies the head of the Fire Department as the Fire Chief, it also identifies that role as one of Fire Prevention Officers. There are references to the Fire Prevention Officer throughout the By-law; 3.1 d) is hereby authorized to conduct inspections and take steps to enforce or administer this by-law or remedy a contravention of this by-law in accordance with all other by-laws and all applicable Provincial and Federal Legislation in the Town; shall enforce all provisions of the Fire Prevention Act. PREVENTION AND EXTINGUISHMENT OF FIRES 7.

The duties of the Fire Prevention Officer, who under this by-law is the Chief, shall be those necessary to enforce this by-law, regulations, and the Fire Prevention Act or other laws relating to the prevention and extinguishment of fires.

7(1).

Without limiting the generality of section 7, the Fire Prevention Officer has herewith conferred upon him the same powers under the same conditions as are conferred upon the Fire Marshall by sections 11, 12, 16, and 21 of the Fire Prevention Act.

7(2).

The Fire Prevention Officer or any person authorized in writing by a Fire Prevention Officer may enter any building or premises at reasonable times to inspect for fire prevention or to investigate the cause or origin of a fire.

2. TSI recommends the role of Fire Prevention Officer be defined in the revision of By-law No. 118. A suggestion could be: The role of Fire Prevention Officer will include the duties and responsibilities of creating and maintaining the Fire Prevention Program, which includes inspections and enforcement of the Fire Prevention Act as conferred by the Fire Marshal. For the purposes of this by-law the Fire Chief will act as the Fire Prevention Officer.

3. TSI recommends to further include the following definitions within the definition section of the by-law: a. 5(3). Gas Fire Pits (Campfire Effect Units) which are designed to operate with propane or natural gas, are intended for outdoor use only, not for food preparation, and that are ULC and CSA approved are permitted provided they are supervised at all times, and operated in accordance with manufacturer's instructions in a safe manner and location away from combustibles. b. 5(4). In this section: i. “outdoor wood burning appliance” or “outdoor fireplace” means a manufactured non-combustible enclosed container designed to hold a small fire for decorative purposes and the size of which is not larger than one (1) meter in any direction, and may include, but not limited to, chimneys.

30 | Page

ii.

b) “personal outdoor fireplace” means a hand-made, non-combustible, enclosed container which may include some or all of the components of an outdoor wood burning appliance and has been approved by the Fire Chief or designate.

4. TSI recommends that an annual review of the fire by-law be conducted by the Fire Chief to ensure it reflects the risks and needs of the community and that the fire service remains within the level of service identified by Council.

Governance Organizational Structure Grand Bay-Westfield Fire Rescue Department (GBWFRD) was formed on February 9, 1998 when the Town of Grand Bay and the Village of Westfield were amalgamated, previously they were separate departments that agreed to create one new department. Currently, there are two regional agreements that Grand Bay-Westfield retains with the Zone 2 Mutual Aid Agreement and the Fire Protection Agreement Local Service District (LSD) with the Minister of Environment and Local Government Province of New Brunswick (The Minister).

Municipality Zone 2

Westfield West Gov. NB

Agreement Mutual Aid Agreement The Hampton Fire Department The Long Reach Fire Department The Nauwigewauk Fire Department The Peninsula Fire Department The Simonds Fire Department The St. Martins Fire Department The Upham Fire Department The Musquash Fire Department Greenwich Fire Department Welsford Fire Department Fire Protection Agreement

Date issue/expiry May 21,2015/can in writing opt out.

Sept 28, 2020/perpetuity

Under these agreements Grand Bay - Westfield Volunteer Fire Rescue Department provides fire response coverage to the area. Area maps outlining fire service coverage responsibilities are provided in Figures 5, 6 and 7 on page 32.

31 | Page

Figure 5 Grand Bay - Westfield Volunteer Fire Rescue Department Response North Coverage

32 | Page

Figure 6 Grand Bay - Westfield Volunteer Fire Rescue Department Response South Coverage

33 | Page

Figure 7 Grand Bay - Westfield Volunteer Fire Rescue Department Response Coverage Overview

In summary, there are currently two inter-municipal agreements in effect that provide language for the structure, administration rights, financial obligations, and legal direction of the fire authorities.

5. TSI recommends formalizing the relationship between the Grand Bay-Westfield Fire Rescue Department and the Saint John Fire Rescue Department through a Mutual Aid Agreement, either with Saint John exclusively, or with Saint John and other Municipalities in the area surrounding Saint John.

Organizational Structure Grand Bay-Westfield Fire Rescue Department (GBWFRD) is a well-trained fire service, capable of handling a broad range of emergencies and hazardous situations. Functions of GBWFRD includes fire suppression, auto extrication, hazardous material spills, medical response, which are provided from two fire stations located in the Town of Grand Bay-Westfield. In addition to emergency response services, GBWFRD provides public fire safety education, fire prevention inspections and code enforcement through the powers granted to them via the New Brunswick Fire Marshal, and the Fire Prevention Act. Responding to an average of 234 incidents per year, GBWFRD serves a population of approximately 6500 people, spread over an area of 59 km2. This equates to a present population density of 110 residents per square kilometre.

34 | Page

The GBWFRD has employed an emergency service structure that has always relied on volunteerism (Volunteers paid an honorarium) and full-time employees system. The department is administratively supported by a full time Fire Chief, a full time Deputy Chief, two Volunteer District Chiefs, one Full Time Training Captain. It should be noted that there is an additional position as Deputy Chief.

The organizational chart illustrated in FIGURE 4 reflects the general reporting structure within the Fire Department. Administration of the Fire Services largely falls to the Fire Chief as defined in By-law No. 118 who reports directly to the CAO.

Figure 8: courtesy of the Grand Bay -Westfield Volunteer Fire Rescue Department 2021 - 2026 Strategic Plan

35 | Page

By-laws and Policy Documents follow a hierarchy to ensure that the right groups have the proper authorization and oversight. Documents serve different functions and purposes. For a municipality, the documentation hierarchy is shown in Figure 5.

By-laws The New Brunswick Local Government Act (LGA) gives Council the authority to pass by-laws Local Government Act 186 (1)a - d, 186 (2)a, (2)b. Creating a by-law that meets general statutory and fundamental principal standards is only part of the process. Municipal administration aims to create by-laws that are understandable, enforceable and accomplish the Council’s anticipated goal. By-laws are a requirement as per the LGA. They are passed by Council in a public meeting. By-laws create a regulation that is enforceable. Fire By-law No. 118 Volunteer Fire-Rescue By-law is the current by-law governing and sets Councils goals for fire service delivery in the Grand Bay-Westfield response district.

Policies When a Council decides to put in place a policy that means they have chosen to put in place a rule that is to be followed. And while the LGA has some mandatory requirements for certain policies, most policies are discretionary. The more policies a municipality has, the more rules that are required to be followed and the less discretion a Council will have. It is in this context, that Council is reminded that when contemplating the incorporation of a specific policy, be sure that it is something that you have carefully considered. In the absence of policy, Council has complete discretion in dealing with an issue. Policies are approved by Council and are outward facing public documents which set standards of performance. They relate to Figure 9 Document Hierarchy interactions between the Town and its public and external entities.

The CAO has jurisdiction and the responsibility to put in place those steps and procedures that enable Administration to implement what Council has decided and intended to do in the policy.

Directives Directives for the Municipality are approved by the CAO and are internal documents. They set standards that Grand Bay - Westfield (GBW) staff adhere to when performing their duties. Directives apply to staff in multiple departments. Additionally, directives can be utilized by the Chief in order to communicate short, interim or long term command decisions that affect SOP’s and SOG’s. Currently the Chief is using several methods to communicate a change or addition to the SOG’s or operations of the Department

36 | Page

that include; General Orders, Special Orders, and Memos. The sheer number of documents that members have to be aware of can be overwhelming and confusing. Simplifying the communication method with clear directives that state the purpose, date and as an option how long that directive should be in effect would be more effective. A fillable example of an Operational Directive can be found in the Appendices section as Appendix I 6. TSI recommends that the Chief adopts one form of Operational Directive in order to communicate any command decision, change or addition to any fire department documents, either interim, short or long term. All directives should be kept in an accessible place for personnel to reference. Additionally, that a system be implemented to review the directives annually to either delete them or move them into a more permanent document.

SOP’s and SOG’s Standardization of action is a critical component in emergency response to an incident. Through the development and implementation of clear and acceptable standards of operation, a Department will efficiently and effectively mitigate risks to themselves and to the public. Every Department requires a set of these directives specific to their risk, resource, and operational profiles. Second to this, each member of a fire department should be aware of their specific responsibility within a Policy, Procedure and Guideline.

Strategically, policy and procedure documents align and connect a fire department’s vision, mission, and values to its operations by helping management direct the organization to achieve its goals. See figure 6 below taken from the 2021 - 2026 Strategic Plan.

37 | Page

The Canadian Association of Fire Chiefs (CAFC) created a Red Book (second edition), Select Best Practice Guidelines, 2021., which includes the following information: Fire service organizations often use the terminology of standard operating guidelines, standard operating procedures, and policies interchangeably. However, there are differences: 1. Policies are broad statements that set direction within an organization; they are usually mandatory.

2. Procedures outline a sequence of steps to achieve a particular result; there is a consistency of this repetitive approach to accomplish a result.

3. Guidelines provide part of the procedures framework but are not inflexible like policies.

Additionally, guidelines are intended to be applied with the user’s judgement when carrying out the tasks or duties within a procedure.

The International Association of Fire Chiefs offers the following characteristics which are viewed as essential to the quality implementation of tools and resources such as standard operating procedures, guidelines, and policies: ●

A standardized framework to develop and maintain procedures (SOPs) and guidelines (SOGs) consistent with national standards and municipal and departmental policies;

●

Procedures compatible with regulatory requirements and national standards, and crafted to the unique needs of your department;

●

Robustness of training and demonstration of competence; and

●

A stable process to monitor performance and ensure compliance.

7. TSI recommends a review of the Standard Operating Guidelines to ensure they reflect the Level of Service Policy, set clear, concise direction based on the Vision, Mission and Values and meet the above standardized framework.

When TSI reviews a set of standards, we do so with the following definitions and principles in mind: Standard Operating Policy – A written directive that establishes a clear set of rules and regulations for a specific operation or administrative method to be adhered to. Policy does not provide a list of actions on how to complete something, it provides the rules for an action.

Standard Operating Procedures – A written directive that establishes specific operation or administrative methods to be followed routinely for the performance of a task or for the use of equipment.

38 | Page

Standard Operating Guidelines – A written directive that establishes recommended strategies/concepts of emergency response to an incident.

Referenced Easily – A set of standard operating documents should be easy to navigate and find the applicable single document for reference.

Roles and Responsibilities Clearly Outlined – Every document should provide clear direction on who should know what. For example, if the department has a standard operating procedure on commercial inspections, it should clearly indicate who is responsible to manage the inspection service and what actions they should take during an inspection.

Regularly Reviewed – Environments and resources can change, and standardization has to be reviewed to meet these alterations.

As part of this review, TSI evaluated the initial supplied By-laws, Policies, and Standard Operating Guidelines; overall, the documents contained a great deal of information, although at times in conflict with each other.

When compared to the above-mentioned metrics opportunities for improvement include: Clearly defining a procedure vs. a guideline vs. a policy: There are some actions where there is some latitude and others where there isn’t.

Providing this differentiation in the documents would greatly assist all stakeholders, stipulating clarity on the hard and fast rules versus the ones that are a guide. Reference to Procedures should only be used when there is a procedure to refer to. Using Guidelines as framework to house Procedures would provide clarity in the document structure and for the reader to understand. There are two documents that address Firefighter Crew Assignments, and Scene Organization and Communications, neither of which are classified as a procedure, guideline or policy yet deal with very detailed procedures.

8. TSI recommends moving the two documents titled Firefighter Crew Assignments, and Scene Organization into procedures contained within an SOGs in the Operation section 600.

Inconsistency in sections: Standard Operating Guideline Section 400 is titled Occupational Health and Safety when it’s really about; Driver Operations, Driver training, Training Vehicles, Driving Department Vehicles, Persons riding on Department Vehicles, and EM response in department vehicles.

39 | Page

9. TSI recommends separating section 400 out of the OHS section and creating a Driver Operator section of the SOG’s, conversely the Driver Operator section could be contained in an Operations section.

10. It is recommended that in addition to the other statutes written in section 400 that it should include the federal Traffic Safety Act. Not regularly reviewed: In the document provided by The Grand Bay-Westfield Fire Rescue Department, in the Standard Operating Guidelines there was an indication that most of the Guidelines had been developed in 2001 and many haven’t been reviewed or updated since their inception. A few have been updated recently (2021).

11. TSI recommends that regular annual reviews of all Fire Department documents be completed to reflect any changes in the fire service or guiding documentation i.e. NFPA changes and updates.

Additionally, the review of the documents will facilitate an opportunity to move Directives that may have been issued throughout the year into an actual Guideline, Procedure, or Policy, or to remove them completely if no longer relevant.

Suggested Guideline and Procedure amendments: SOG’s 100.0 - 204.1 contain information specific to the management of personnel, job descriptions, honorariums and code of conduct. While it is critical to have a documented framework for personnel management and easy reference, it is considered best practice to contain these parameters in Fire Service Policy that can easily be amended and reviewed. Moving the above-mentioned SOG’s into a Policy will have the welcome benefit of creating streamlined, operation orientated Standard Operating Guidelines(SOG’s).

12. TSI recommends creating a Policy manual for the SOG’s contained in SOG 100.0 - 204.1, specific to the management of Personnel, discipline, job descriptions, honorariums and code of conduct.

Conversely the SOG’s contained in SOG 100.0 - 204.1 could be added into the Corporate Policy Manual in a section called Firefighter Policies.

SOG 100.5 - Disciplinary Actions should include the ability to have comments from the firefighter as part of the written statement and reflect that administration will investigate any serious misconduct or complaint. For protection of both the firefighters and Administration it is recommended that the SOG clearly state “Given the severity of the misconduct, any and all steps may be skipped, and dismissal from the department may result.” This will enable management to better protect both the firefighters and Department from any negligence or behaviours as a result of gross misconduct on the part of the personnel being investigated.

40 | Page

13. TSI recommends supporting the firefighter being disciplined, in being offered an opportunity to provide written comment on the documentation contained in the file.

14. TSI recommends allegations of any form of misconduct should automatically be documented and considered for investigation.

15. TSI recommends that given the severity of the misconduct any and all steps contained in SOG 100.5 can be skipped, and dismissal from the Department may result.

Irrelevant policy: There are slightly over 100 Standard Operating Guidelines, many of which contain policies that are specific to the organizational structure of the Fire Department, and several speak to how personnel are managed.

16. TSI recommends the creation of a Policy Manual to manage the organizational structure and personnel management.

17. TSI recommends that Guidelines are reframed to include Procedures, in a identified Procedures Section within the framework of those Guidelines.

Many of the SOG’s are lengthy and often confusing in their minute details, for example SOG 403.1 could be simplified by stating existing provincial and federal driving regulations instead of dividing the classification of vehicles into two categories made simply for the SOG. Simplicity, clarity, plain language and use of existing regulations will not only provide the necessary clarification, it will also provide opportunities for the firefighters to accept responsibility and increase their own accountability.

18. TSI recommends examining the many SOG’s through the lens of what is absolutely necessary to give clarity and direction on, and what is something that can be managed with discretion, at scene, on the fire ground.

Records Management and Business Continuity With the increased pressure from governing guidelines and requirements Fire Departments of today are becoming more complicated to run. The increased pressure of maintaining reporting, payroll, personnel documentation as well as records management on the whole, it’s become critical to have an electronic program that can help with the required workload. Utilizing the existing record management system to the fullest would greatly benefit the Department's organizational capabilities and increase its operational efficiency.

The good news is that the recent software purchased and currently used by GBWFRD is capable of managing training documents, and records of training for each member, payroll, apparatus, inspections, and reporting, moreover it is fully customizable for the needs of GBWFRD. Instructional videos on how

41 | Page

to use the software are available to the Department as well as in person training hours which can be used to take advantage of the expertise of the software company to train personnel.

19. TSI recommends continuing to utilize the training available to them to train their personnel in the use of the record management software. The training should be tailored to meet the learning needs of the officers and firefighters alike.

During our visit to Grand Bay-Westfield and through our interviews we had the opportunity to interact with the personnel and officers of the Department. They were exuberant about their fire service provision and frequently reluctant to bring up any concerns about any aspect of the fire service. TSI was able to do a workshop with the team on our visit where we used a group survey as framework for a robust discussion on the department, additionally we completed a Strength, Weakness, Opportunity and Threat (SWOT) Analysis.

In order to provide the opportunity for fire personnel to voice their opinions privately, in addition to the group feedback, TSI also orchestrated an online survey of the firefighters. When asked about the Administration, in relation to their comfort level with the documentation process specifically, we heard: “I know what documentation and processes I must complete for the department ●

5.56% of respondents felt slightly aware,

●

27.78% of respondents felt somewhat aware,

●

27.78 % felt moderately aware and,

●

while 38.89% of respondents felt extremely aware of the requirements”

The fact that less than 39% of respondents are “extremely aware” of what is required for the documentation process supports the belief that the numerous documents lack the ability to provide simple and concise clarity on any specific item. This lack of clarity can lead to increased confusion, less understanding between the personnel and ultimately lack efficiency in communication. Dividing the documents into small sections such as Personnel Policy, and Standard Operating Guidelines which provide a framework for the procedures will help clarify the role of each document.

Training in the management of the paperwork associated with the role of fire personnel i.e. incident reports, training, tracking maintenance of apparatus, equipment, self-contained breathing apparatus (SCBA) and gear, is essential. This can be facilitated by leveraging the existing records management system and supported by a clear concise SOG outlining the need for paperwork completion.

42 | Page

FIRE RESCUE OPERATIONS

43 | Page

FIRE RESCUE OPERATIONS Level of Service A Level of Service (LOS) document, whether it is formalized in a by-law or policy, is the strategic foundation by which all modern fire services are established. A LOS is the local government’s commitment to public safety within the community.

The inception of fire services was driven by residents identifying the need to protect their property from destruction by fire. Volunteer groups would establish a department or Brigade, raise enough money and show enough commitment for local governments to assist with the purchase of apparatus and equipment. This in turn resulted in a basic fire service for the community. Still today, many of these volunteer groups continue to serve as the driving force of the fire service in many communities. In essence the fire services of yesterday and today were reverse engineered or built from the top down.

Buildings, apparatus and equipment were purchased without a clear plan on what core services were necessary other than structural fire suppression.

Figure 10 Traditional Approach to Establishing Fire Service

Today with tremendous increases in costs for the procurement of apparatus, equipment, and required training, it is truly important to understand that municipal fire services are required to address the hazards and risks in their community. Modern fire departments are built from the bottom up, first identifying the hazards and risks the community faces through the use of a Hazard Identification & Risk Assessment (HIRA). Understanding the hazards, risks and vulnerability in the community allows for a

44 | Page

more strategic approach to building a modern fire service and by establishing a defined LOS to address core fire and emergency services. A modern approach may follow this guideline/approach:

Response and Service OHS & Safety Programs Standardized Training

Apparatus & Equipment Staffing & Recruitment Administration & Leadership Level of Service, By-law or Policy

Hazard Identification & Risk Assessment Figure 11 Modern Approach to Establishing Fire Service

The vision and commitment of individuals and groups who used the grassroots approach to build local fire departments needs to be commended. They are the reason we have local, advanced fire services providing an all-hazards approach to protecting the public in our communities.

After TSI’s review of the supplied documents, it’s clear that the Grand Bay-Westfield Fire-Rescue Department (GBWFRD) is a capable and well-run Fire-Rescue Service. However, while providing these services, Council has not established clear, well defined, LOS guidelines to address the core services required to manage and mitigate risks and to ensure adequate response and services for public safety.

That is not to say that the current response and service provided by the GBWFRD service is sub-par or inadequate in any way. On the contrary, statistics and public opinion prove that current service is in-line with industry standards and best practices.

Defining an appropriate LOS will aid the GBWFRD in achieving a strategic approach to the overall management of its fire service and the delivery of those services to the public. Establishing and maintaining a LOS allows for a progressive and proactive method of fire service management.

45 | Page

A LOS is created by having a comprehensive understanding of community hazards and risks, then; ● ● ● ● ● ● ● ● ●

Identifying and describing core services to be provided.

Identifying and describing extended services to be provided (if any).

Identifying at what level the services will be provided; Awareness, Operational, or Technical.

Identifying adequate staffing levels (overall and for each identified service).

Identifying required training needs and priorities.

Identifying required apparatus that are aligned with provided core services.

Ensuring safety as a priority.

Building a respectful, inclusive work environment.

Creating protocols and procedures to enhance response and service.

A LOS document is meant to clearly define the minimum level of protection that reflects the desire of Council in its attempt to manage and mitigate risk. The Fire Chief and their Administration, as subject matter experts, are responsible to guide Council in its decisions regarding the LOS. Subsequently the Fire Chief will be responsible for the implementation of fire operations to achieve or exceed the desired LOS. An appropriate LOS must touch on several key factors; ● ● ● ● ●

46 | Page

The LOS must be attainable by the department. FD capability and capacity should be sufficient to meet the minimum service level described.

The LOS must be sustainable, both fiscally and operationally.

The LOS should be reviewed regularly (NFPA 1720 suggests an annual review).

The LOS should be aligned with the appropriate municipal demand zone.

The LOS should be aligned with Provincial Legislation

Although the LOS is described as a minimum level of service, this should not be confused with limiting the quality or quantity of services provided. Service levels may exceed the minimums provided that adequate staffing and training are in place to competently provide those services. The inclusion or addition of extended services to the level of service should be carefully considered. Specialty and extended services generally require high levels of training and expensive apparatus and equipment. In addition to high capital costs, the initial and recurrent training required to deliver these services can also be expensive and increase strain on staff. GBWFRD along with many fire services across the Country have experienced this with the dramatic rise in medical first response incidents over the last decade.

Establishing a LOS does not guarantee that adequate service will be provided. It is still up to the Fire Chief to manage the GBWFRD in order that this LOS is achieved, maintained and in some cases exceeded to the benefit of all persons.

Section 3 of By-law #118 describes, in a general sense, the expected services/activities of the GBWFRD, which includes; ● ● ● ● ● ● ●

The prevention and extinguishment of fire Protecting property from fire Assisting outside agencies with provision of non-fire related rescue services Fire prevention and education Emergency Medical First Response Environmental Services Life-Safety Rescue

The GBWFRD Strategic Plan describes FD services in the following context: ● ● ● ● ● ● ● ●

47 | Page

Fire Services: Structural, Wildland Hazmat to operations level Medical First Response Auto Extrication Ice Rescue Off Road Rescue Fire Prevention and Public Education Mutual Aid

Reviewing response statistics revealed a more detailed list of ‘call types' which more accurately describes service levels currently being delivered by the GBWFRD. The services are described by name.

For ease of reference; the dispatch code and this year’s call volume (January 1, 2022 to October 31, 2022) have been included.

CALL TYPE

DISPATCH CODE

VOLUME

Medical Rescue Motor Vehicle Accident Fire Alarm Activated Mutual Aid / Assistance Wire Down

62

93

31

15

73

13

65

6

43

5

Structure Fire

10

5

Electrical Problem Outside Fire

69

4

10

3

General Service Call

69

2

Explosion/F ire NonMedical Rescue Water Rescue

10

CALL TYPE

DISPATCH CODE

VOLUME

Level 1 Hazmat Level 2 Hazmat

41

1

41

0

41

0

75

1

13

0

10

0

73

0

12

0

10

0

1

Level 3 Hazmat Odour / Fumes Chimney Fire Fire Unknown Emergency Reset Fire Alarm Grass / Woods Fire Mobile Property Fire Refuse Fire

12

0

30

2

Ship Fire

10

0

30

1

Off Road Rescue

30

0

Figure 12 Response Frequency by Call Type

This list of services along with the descriptions in Section 3 of By-law 118 will be considered as the current LOS used by the GBWFRD. It is a more targeted and structured approach to services.

An industry standard level of service will describe each service using the following criteria as a minimum. ● ● ● ● ●

The service provided, and at what level it will be provided A brief description of the service Whether the service is a core or extended service Whether the service is compulsory to appropriately address risk Minimum staffing required to safely and competently perform the service

The Policy should include the following information:

48 | Page

● ● ● ● ●

Policy Statement Purpose and Scope Identification of Service Delivery Matrix of services; Organizational, Core Fire, Extended Service Explanations

The following is an example of a Core Services matrix: CORE SERVICES The most common and important “Core” Fire Services offered throughout the Alberta Fire Service.

Service General Firefighting

Service Level Operations

Apparatus & Vehicle Operations

Operations

Fire Suppression (Exterior Operations) Fire Suppression (Interior Operations)

Technician

Wildland Grassland Firefighting

Technician

Figure 13 Core Services Matrix

49 | Page

Operations

General Description of service Required basic skills and training post orientation; involves personal and team safety; all basic JPRs from NFPA 1001-L1 Driver training to meet Traffic Safety Act; operations of vehicle systems excluding pump operations Training based on NFPA 1001-L1; Optional certification achieved through the province Training based on NFPA 1001 - F1 & F2; Optional certification achieved through the province Training based on NFPA 1051 JPRs

Comments Compulsory Service Compulsory Service Compulsory Service Min staff 3 Optional Service Min staff 4 Compulsory Service Min staff 3

The Matrix may be followed by the Services Explanations as noted below.

Core Services Explanations: 1. General Firefighting Firefighter initial orientation, core competency training and skill maintenance. These are the required basic skills and training involving personnel and team safety; all basic Job Performance Requirements (JPRs) from NFPA 1001-L1 are applicable based on the Level of Service.

2. Apparatus & Vehicle Operations Driver training to meet Traffic Safety Act; safe operations of vehicle systems (excluding pump operations), including Pre-trip inspections and documentation, apparatus backing and manoeuvring.

3. Structural Firefighting: Interior Operations Interior structural firefighting will only be performed where sufficient personnel, training, equipment, and water supply are on scene to safely carry out such duties as ventilation, search and rescue, fire attack, and salvage and overhaul. The Fire Department shall operate at the Response Level to which they are trained.

4. Structural Firefighting: Exterior Operations Fire Departments shall operate at a Technician Level at non-- structural fires, including but not limited to vehicle fires, outbuildings, and other non-structural fires unless there are special circumstances which exceed the Fire Department's training, in which case, the Fire Department shall operate at the Response Level to which they are trained.

5. Wildland-Grassland Firefighting Grassland fire suppression requires specialized apparatus, water, foam, and other equipment.

The Fire Departments shall operate at a Technician Level.

The Key benefits to establishing a clearly defined Level of Service include: ● Organizational stability; improves operational and financial stability ● LOS drives the training program ● Reduces municipal liability ● Improved overall safety ● Guides staffing minimums/maximums ● Focuses apparatus requirement or need ● May provide efficiencies in overall response to events As an increased commitment to safety, consistency and efficiency in response and service, fire services are encouraged to establish dispatch protocols for each service that requires a physical response.

The most consistent response we received from all levels of the GBWFRD was that there was a need for water rescue to be included in the LOS. Water rescue response statistics indicate that 20 “water rescues” were either dispatched or conducted over five years, an average of four water rescue calls per year. It was not specified if the water rescue calls were ice rescue or static water rescues. The “Call Stats last 5 years” did not indicate specifically any water rescue call therefore it is possible that they were

50 | Page

categorized or captured as “public service” or “miscellaneous rescue”. Due to the limited demand requirements, expense of training and apparatus (rescue boat) TSI does not recommend adding water rescue to the LOS. Other options exist that should be explored first including partnerships or coresponse with outside agencies including: ● ● ● ●

The Canadian Coast Guard The Department of Natural Resources (DNR) The RCMP Local and regional Search and Rescue organisations

The DNR operates two boats, are trained in swift water rescue and often work with the RCMP. They can be in GBW in 15-20 minutes to offer support to the GBWFRD. TSI has developed an example LOS document, for your consideration, that we feel would be aligned with the capacity and capability of the GBWFRD and address the hazards and risks in the community. It was developed using the Alberta Fire Services Core Competency Framework tool and the current risk assessment herein. It can be viewed in Appendix II. A few available resources for the development of a LOS document are available in NFPA 1720, as well as the Alberta Fire Services Core Competency Framework. The Core Competency Framework is a free tool available to any municipality or FD to assist with the development of services levels and training requirements. To access the tool, use this link, https://abfirechiefs.ca/. An example of a LOS matrix can be reviewed in Appendix III. 20. TSI recommends that the Town of Grand Bay-Westfield develop a new Level of Service document that will serve as the foundation of fire and rescue services provided by the GBWFRD to the residents of Grand Bay-Westfield and the adjacent Local Service Districts.

21. TSI recommends exploring the possibility of improving collaboration with agencies capable of providing water rescue services with the goal of establishing a co-response initiative that would be effective and meet GBWFRD expectations and operational goals in providing water rescue services.

Response and Service Response and service is seen as the effective and competent service benefit being delivered to people in need and is the culmination of all fire department activities. This product is what the FD constantly trains and prepares for. Citizens are witness to the spectacle of fire apparatus as they proceed to an event with sirens blaring, and to the myriad of functions, tasks, and skills performed on scene by fire crews.

Success in response is generally measured in time, the total amount of time it takes from the receipt of a call for assistance to the arrival of fire crews to the scene. Many variables affect response times; however, the most successful fire services have clear response protocols that ensure a timely response is achieved. Plans and systems, in the form of protocols allow fire crews to focus on time rather than

51 | Page

strategy and decision making in the incipient stage of response. Everyone is aware of the protocol, so it’s only a matter of getting to the fire station, getting prepared and then responding on the apparatus.

Reviewed response statistics revealed an average total response time of nine minutes fifty-one seconds [00:09:51]. Generally, any response time under ten minutes is exceptional. This is a remarkable achievement by the men and women of the GBWFRD that should be applauded.

Another key factor in response and service delivery is the capability and capacity of GBWFRD. The Department must maintain an acceptable degree of availability and capability and have the capacity to deliver the desired LOS defined by Council. Staffing, training, competency, communications, apparatus, and equipment are all necessary components to maintain capability and capacity. A deficiency in any of these components directly affects either the fire service’s capability to respond, or its capacity to deliver appropriate service. TSI’s stakeholder engagement revealed that Council is pleased with the overall operation and service provided by GBWFRD. Through its commitment to the community GBWFRD has demonstrated that it generally meets or exceeds the expectation for capability and capacity.

Another aspect of response is the creation of a standard of cover within the fire service. This practice involves prioritizing the deployment of emergency response resources for different incident types. For example, a standard of cover for response to a common house fire could include the deployment or dispatch of an Engine, Tanker and Rescue. This minimum standard of cover works in conjunction with dispatch and response protocols to enhance community risk reduction. The GBW Spring Freshet Emergency Response Policy is another example of a component of CRR. Much of this might already be informally in place, nevertheless formalizing a standard of cover should be considered as a long-term goal.

Analysis of response statistics indicates that GBWFRD response is on par with industry standard, however, GBWFRD compares its response to NFPA 1710 as noted below.

NFPA 1710 Standard (response expectation) Turnout & Response, 540 sec (9 minutes); 15 personnel; on scene in 9 minutes.

GBWFRD Actual Response result; # Personnel Requirements Met for 9 Incidents (23.68%) Averages: 24.6 Requirements NOT Met for 29 Incidents (76.32%) Averages: 16.9

Response Time 00:06:49 00:10:09

TSI believes that the use of NFPA 1710 is not achievable by GBWFRD. NFPA 1710 generally applies to FDs with staff that is 80 percent full time, while NFPA 1720 applies to FDs whose staff is 80 percent volunteer. The Town of Grand Bay-Westfield is a mix of suburban and rural demand zones. The large residential lots within town, low population density and no integrated hydrant system could even allow the consideration of a rural demand zone. Essentially, the Town of Grand-Bay-Westfield, with a population density of 85 residents per square kilometre, is sitting on the fence between suburban and rural and could be classified as Rural Residential. For the purposes of this report, we will consider Grand Bay-Westfield as suburban.

52 | Page

As a suburban demand zone, NFPA 1720 (4.3.2) response expectations are as follows; Staff of 10; Response within 10 min. (600 sec.); 80% of the time.

If we compare this to the above NFPA 1710 expectations, you can see that the GBWFRD is certainly on par with industry standard and best practices. Regardless of the standard or expectation used, the GBWFRD should be commended for its current response capability.

Efficiencies in response may be gained by breaking down and tracking the key components of response; total dispatch time, chute times and travel time, though in this case, with average response times for all calls at under 10 minutes, it is not warranted.

The GBWFRD responds to an average of 234 calls per year. The charts below provide a snapshot of responses, by type, over a six year period from January 1, 2016 to December 31, 2021. Please note that related call types have been combined to provide manageable information for the graphs. Obviously medical first response, with its 67.6 percent of total responses, is by far the greatest demand on the system. The next largest demands are Fires (all), MVCs, and Alarms, all in the eight percent range. We must consider, however, the consequences and outcomes of different call types. A fire in a school or spring freshet could have a greater negative impact on the community than a medical first response to someone with shortness of breath. Hence the need for readiness and competency in all services.

Figure 14 Response by Call Type: 6yr Average

53 | Page

Figure 15 Annual Average Call Volume 2016-2021 Gaps in daytime response within the Volunteer fire service is commonplace nationwide. GBWFRD has been creative in addressing this issue by creating a shift schedule that Officers and firefighters of different skill levels can sign up for in advance. It is a proactive approach to solving a significant problem directly affecting response and service. The colour coded shift schedule, although complex to the uninitiated, is online and available to all members via cell phone, and by all accounts, it works! Another gap in service that was identified by TSI was that of response to wildland and WUI events. Although the climatic profile suggests that wildland/WUI events are unlikely to occur it may be prudent, and achievable, to address this probability.

Service is the component of response that begins once the first arriving apparatus reaches the scene. In order to provide the best service possible, the first arriving apparatus should include adequate staffing that provides for an effective response force (ERF). Generally, this is a crew of four or more for a structure fire response. Response protocols should include minimum staffing for each service provided, ensuring at least the minimum number of appropriately trained staff are available to respond. If for some reason, minimums can’t be met, mutual aid should be contacted to bolster staff numbers.

Automatic aid is implemented In many regions where reaching minimum staffing is an issue.

Adequate staffing is a cornerstone of providing effective service. Only Guideline 702.01 - Responding Personnel, addresses the staffing requirement for personnel responding to medical emergencies. Similar guidelines or procedures should be considered for all time sensitive and high priority incident types.

54 | Page

22. TSI recommends that internal guidelines, procedures or protocols be created for minimum, or maximum staffing requirements, for response to all services requiring a physical response, specifically those services that are high priority or time sensitive, and that these protocols are shared as part of the training program with all staff.

23. TSI recommends a review of Grand Bay-Westfields geographic and municipal make-up to determine the most appropriate designation for municipal demand zone (Urban, Suburban, Rural, Remote) in order to determine which NFPA Standard (NFPA 1710 or NFPA 1720) best applies to the community and response area.

24. TSI recommends that GBWFRD consider, as a medium to long range initiative, the creation of, or, a review of all dispatch and response protocols to ensure they are aligned with the LOS policy.

25. TSI recommends that GBWFRD develop, as a medium- or long-term initiative, a standard of cover for all critical response types.

26. TSI recommends in the medium term, the consideration of relay pumping as an alternative to water shuttles to increase efficiency and safety at significant fire events.

55 | Page

Apparatus and Equipment Careful consideration has gone into the development of fleet requirements for the Town of GBW and the GBWFRD. It should be noted that fire apparatus is as diverse as the communities they serve. All communities have specific challenges that require customization and preferences about fire service apparatus. The resulting GBWFRD fleet is a good compromise between operational efficiency and capability, and fiscal responsibility and sustainability. Since no hydrant system exists in the Town of GBW prudent planning and specifications for apparatus have been taken into account. Fleet inventory is noted in the chart below.

Apparatus Type Engine 3 - 2021 Freightliner M2-106 Engine 2 - 2014 Spartan Metrostar Engine 1 - 2012 Spartan Metrostar Tanker 2 - 2007 Sterling Acterra Rescue 1 - 1999 International 4700 Rescue 5 - 2015 Ram 2500 4x4 Car 1 - 2017 Ford Explorer XLT Car3 - 2019 Ram1500 4x4 Unit 5 - 2007 Yamaha Rhino 660 (UTV) Rescue 5 Trailer Ice/Water/Off-road

Locatio n Stn 1

Pump Capacity 1050/4800

Water Capacity 1500/6825

Cre w 5

Other

Stn 2

1050/4800

1200/5460

6

n/a

Stn 1

1050/4800

800/3640

6

n/a

Stn 2

420/1900

1500/6825

2

n/a

Stn 1

n/a

n/a

8

Stn 1

n/a

n/a

5

Heavy Rescue/VX Tow

Stn 1

n/a

n/a

4

Command

Stn 2

n/a

n/a

5

Stn 1

n/a

n/a

3

Stn1

n/a

n/a

n/a

Command/to w off road rescue holds Rhino

n/a

**Note: Pump capacity and water capacity are indicated in IGPM/LPM Figure 17 Fleet Inventory

Engines GBWFRD Engines are modern, with an average age of 6 years, and have a much larger water carrying capacity than common Engines. As a matter of fact, these apparatus could be considered Engine/Tankers. They have the pumping capacity of an Engine and the water capacity of a tanker. Engine 3 and Engine 2 are each equipped with rear dump systems common to all modern Tankers. In short order, the GBWFRD is expecting delivery of a new Engine which will replace Engine 1, reducing the average age of the Engines to three years. Engines 1 and 2 are equipped with Compressed Air Foam Systems (CAFS) and Engine 3 is equipped with a Foam Pro system. These systems allow for greater adhesion of water/foam suppressant to areas involved in fire, greatly enhancing extinguishment capability with lesser amounts of water. This is extremely important due to the fact that there is no typical hydrant grid system in GBW or adjacent LSDs. Crew capacity of all Engines is at least five, which

56 | Page

allows for the transport of an effective response force (ERF) on arrival at the scene, resulting in prompt effective service. TSI’s engagement process identified some concerns regarding vehicle warning system alarms, but with new digital technology this is a common and recurring issue of modern apparatus. That is not to say that these issues should not be addressed or ignored, but simply that prompt resolution of such issues would certainly remove the annoyance of alarms constantly sounding during response to events. Overall, the Engines are well suited for the operational requirement of the Department.

Tanker 2 Tanker 2, the only designated Tanker in the fleet, is 15 years old, carries 1500 imperial gallons of water, and is equipped with an integrated 420 GPM fire pump. It has a regular cab for a crew capacity of 2, and its primary function is to transport water between a water source and the fire scene. Accomplishing this by carrying the maximum allowable amount of water, this Tanker is well suited for its mission and may remain as a front-line unit for another ten years.

Rescue Rescue 1 is 23 years old, is still in remarkable condition, but has reached the end of its useful life cycle. It was very well designed as a heavy rescue and is exceptionally equipped. Future plans include replacing it with Engine 1 once the newly acquired Engine arrives. The challenge will be in converting the Engine into a rescue to maintain functionality as a Rescue. Although crew capacity will change from 8 to 6, this is a minor concern because the Rescue will always respond with other fully staffed apparatus with pumping capability. It will no doubt continue to serve the community until it is replaced and may very likely serve as a piece of reserve apparatus well into the future.

Rescue 5 is a medium duty Ram 2500 4x4. Its uses include being the primary tow vehicle for the Rescue 5 Trailer, response to brush/grass fires, as well as a support and utility vehicle. It is half way through its life cycle, and medium to long term considerations should include the replacement of this apparatus with a heavier chassis (1 ton) with the capacity to load a skid unit equipped to fight wildland and WUI fires.

Car 1 The Ford Explorer is the Chief’s vehicle. For emergency response it is configured as a command vehicle.

It is well suited for this purpose being equipped with lights and sirens, communications equipment and a well-designed portable command module.

Car 3 Car 3 is designated as the Deputy Chief’s Vehicle. It is a four-wheel drive half-ton Ram 1500 support and utility vehicle, is appropriately configured for emergency response and is capable of towing the Rescue 5 Trailer.

57 | Page

Rescue 5 Trailer This twenty-four foot well equipped tandem trailer contains all equipment for off-road, water and Ice rescue, including Unit 5 (UTV Yamaha Rhino 660) and the ten foot Zodiac rescue boat (with outboard motor). It is situated outside at station 1. The Rhino 660 is a side-by-side utility task vehicle (UTV) used primarily for off-road rescue and the transport of personnel into, and out of, difficult terrain. The 10 foot Zodiac rescue boat and Honda outboard engine has very little value when it comes to open water rescue, such as rescue on the St. John River. However it may be useful for moderate ice rescue operations, or water rescue operations on small dugouts or ponds by members trained and competent in those disciplines.

Equipment and Tools A review of the inventory of fire suppression equipment and tools was conducted to reveal that the GBWFRD is a very well-equipped force. All equipment and tools, including ground ladders, nozzles and vehicle extrication tools are of industry standard. Included as part of the equipment are gas detection instruments, defibrillators, and thermal imaging cameras. These types of instruments are all necessary for a modern progressive fire service. Other noted support equipment in Station 1 included the Jordair air fill station and cascade system as well as the industrial washing machine. Much of the equipment on Engines and Tankers is very robust and made to last decades. Stakeholder feedback brought to light some concerns regarding unspecified aging equipment that should be replaced. Members are encouraged to continue to lobby their concerns regarding essential equipment and its replacement if warranted, but much of the equipment and tools in fire suppression see heavy use, lose their original shine and lustre but remain perfectly serviceable. Proper care and maintenance of all equipment is paramount in maintaining a long service cycle. During our assessment TSI did not review the inventory of fire hose, both for water supply and fire attack operations. Interviews revealed that high volume water supply hose was in limited supply.

TSI noted that firefighters are also well equipped with industry standard bunker gear ensembles, Morning Pride by Honeywell. SCBA is MSA Firehawk series and mounted on the apparatus to ensure all responding personnel are protected. It is assumed that inspection and cleaning of bunker gear and annual testing of SCBA is addressed and carried out according to Department and industry guidelines.

TSI was well supported in the review of apparatus and equipment with inventory documents and photos. This, along with our site visit, enabled our team to carefully examine and evaluate all apparatus, tools, equipment. TSI had no significant concerns with regard to the state or adequacy of current Department apparatus. All front-line apparatus are equipped with mobile radio communications equipment. Responding fire crews make use of cell based iPads for digital mapping and internal communications. A gap in current apparatus exists for the provision of grass or wildland/WUI capability, and the ability of the GBWFRD to effectively address such events. Forested areas adjacent to rural residential development present significant risk and the need for specialized apparatus, equipment and training. Interviews with FD administration noted the concern regarding the lack of Aerial or Tower apparatus. Although useful in many situations, currently all buildings within GBW can be reached via

58 | Page

ground ladders. Future development may dictate otherwise yet in TSI’s view, acquisition of Aerial or Ladder apparatus at this time is an overreach. Other options exist to address this issue. Overall TSI didn’t find any noteworthy deficiencies regarding equipment, tools, or PPE used by GBWFRD. Nevertheless, there are recommendations for mid to long term consideration in the spirit of continuous improvement.

27. TSI recommends as part of medium to long term planning, that the evaluation and replacement strategies of Rescue 5 and CAR 3 include that consideration be given to the use of a heavier chassis suitable for use with a skid unit designed for rapid attack of grass, wildland and WUI fire events.

28. TSI recommends that an increased inventory of high-volume supply hose be considered to accommodate the possibility of relay pumping, as an alternative to tanker shuttles for uninterrupted water supply to major fire events.

29. TSI recommends the review of, or establishment of a mutual aid agreement with the City of Saint John to supply or gain access to aerial ladder or aerial tower apparatus should an event require elevated fire streams, emergency access to inaccessible rooftops or rescue of persons from multistory occupancies.

59 | Page

Logistics and Hall Location Station 1 GBWFRD provides service from two fire stations. Station 1 which is located at 615 River Valley Drive is a large well maintained building that includes shared space with the municipal office of GBW. As such there have been several renovations to accommodate both entities. Station 1 has a large meeting space upstairs and a well-equipped fitness room. Unfortunately for the FD these renovations have resulted in a fire station that is now lacking appropriate apparatus floor space. Although all available space is being used effectively and all efficiencies with regard to space have been rendered, Station 1 is overcrowded.

Four primary pieces of apparatus are deployed here, and the Rescue 5 Trailer is staged outside. The most significant problem is the depth of apparatus bays which limits the options when purchasing replacement apparatus. New apparatus are generally larger than the apparatus being replaced and FD Administration have already had to make decisions regarding the purchase of new apparatus with this constraint. In case of a power outage, backup power generators automatically activate to ensure that electrical power to the Station is uninterrupted. All in all the building is certainly functional and meets the current needs of the Department. A significant benefit of Station 1 is a natural spring water supply that maintains a cistern of approximately 13,000 gallons.

Station 2 Station 2 is located at 293 Nerepis Road. This well-maintained building is also a shared occupancy with Ambulance New Brunswick. The fire Station portion consists of two apparatus bays toward the rear of the building which houses an Engine and Tanker which are deployed at Station 2. Currently, Station 2 meets the needs of the department, but there is no room for expansion without significant long range strategic planning. Although there is more space at Station 2 the station is still marginal in regard to extra usable space. In the case of a power outage portable generators are brought in.

The Town of GBW has made significant investments in its fire stations. Both station have; ● cooking/kitchen facilities ● are equipped with vehicle exhaust extraction systems ● have a comfortable gathering area for the staff ● are geographically located to complement response An observation was made that both fire stations could improve washroom shower facilities to improve personal decontamination following fire events. With the area expecting significant growth and development, along with the needs of Council and the FD, there is need for long term planning and strategies on how to manage the future of fire station improvements and infrastructure.

60 | Page

Fire Training Facility FD infrastructure also includes the fire training facility located on Highland Rd. The area is large enough to contain several apparatus while conducting fire evolutions, live-fire training or vehicle extrication training. On site is a 10,000 gal water cistern to support both training and operations. There are two significant structures located on the site. First is a story and a half wood frame structure. The ground floor offers an informal classroom space and the recent addition of a forcible entry prop. The upper floor is primarily used for non-live-fire evolutions such as search and rescue. The other significant structure is a two story sea-can structure with an integrated pitched roof prop used for live fire training. In addition there is a dumpster fire prop and an additional sea-can for storage. The training facility is well designed and built to provide all the necessities for in house practical training of all firefighter competencies.

61 | Page

Water Supply Water supply was a topic that was clearly identified as either a weakness or threat during the SWOT analysis workshop. With no hydrant grid system for municipal firefighting water supply, the Town of GBW relies on four primary sources of water. *The Towns existing stored water sources utilise a variety of approaches: Locations Water Source Storage Withdrawal ❖ Fire Station #1; Natural spring; Buried Tank; Electric Pump ❖ Morningside; Groundwater well; Buried Tank; Electric Pump ❖ Fire Training Facility; Hauled Water; Buried Tank; Draft ❖ Westfield Crescent; Surface Water/Stream Pond; Pond; Electric Pump *Firefighting Water Supply Plan - Dillon Consulting Further detail about GBWFRD access to water source infrastructure is as follows: ● Station 1 ○ 2 underground tanks installed 2001 ○ 8,000 Gal & 5,000 Gal ○ Filled naturally via underground spring. ○ 200 GPM pump used to refill fire apparatus ● Morningside Crescent ○ 2 underground tanks installed 2007 ○ 10,000 Gal & 8,000 Gal ○ Filled via deep well submersible pump. ○ 200 GPM pump used to refill fire apparatus ● Westfield Crescent ○ Natural pond with man-made containments to minimize outflow. ○ Filled naturally from brooks flowing towards St. John River. ○ Typically contains 20,000-30,000 gallons of water. ○ 400 GPM pump to refill fire apparatus ○ Pump station with new pump built in 2010 “Fire Underwriters Survey defines Required Fire Flow as the amount and rate of water application required in firefighting to confine and control the fires possible in a building or group of buildings which comprise essentially the same fire area by virtue of immediate exposure.”

Water Supply for Public Fire Protection in Canada

62 | Page

Fire flows are calculated by Fire Engineers in order to determine a standard of water application required that will provide prompt adequate extinguishment of 90 percent of all residential structure fires.

NFPA 1142 4.6.3 Water Supply for Suburban and Rural Firefighting, states that the standard for water delivery minimums should not be less than 1100 LPM (250 IGPM). Fire firefighting minimum flow rates for rural structural firefighting are also 1100 LPM (250 IGPM). FUS Superior Tanker Shuttle Certification requires continuous delivery rates of not less than 950 LPM (200 IGPM). NFPA 1720 Annex A.4.4 clearly states that suburban and rural single occupancies not exceeding 5000 square feet should maintain a water flow rate of 3600 LPM (800 IGPM), which can be reduced by 25 percent if not closer than 30 feet to another structure, and further reduced by 50 percent if the occupancy is sprinklered. Generally speaking, flow rates should be maintained for a minimum of one hour, the time most attributable to construction standard methods and materials focused on one hour fire ratings. Please note that the minimums described above are quite different from the following table taken from a FUS report in 1999 (Water Supply for Public Fire Protection), which is based on municipal hydrant water supply systems.

This demonstrates the distinct disadvantage that the Town of GBW faces in regards to water supply for firefighting. On a day when the transport of water to the fire scene works perfectly, it will only supply half of the fire flow designated for the same occupancy in an urban demand zone. Add to that the fact that the storage supply is inadequate, as described in the Dillon report, and the fact that reliability (relying on electric pumps) could be compromised highlights a significant risk.

The GBWFRD has previously engaged in tanker shuttle training to ensure adequate water supply for fire suppression. Consideration was given to attain the Fire Underwriters Survey (FUS) Superior Tanker Shuttle Certification, however this could only be accomplished with the help of mutual aid partners.

Unfortunately, the apparatus used by the mutual aid partners is not aligned with FUS standards or requirements, thereby excluding GBWFRD from Superior Tanker Shuttle Certification.

Two key factors dominate the considerations and requirements for firefighting water supplies.

Fire Departments want their water supply to be adequate (in volume/storage capacity) and reliable, in delivery. In spite of careful consideration to the water capacities of the Engines and Tanker, the town of GBW endures challenges with both of these key factors when involved in significant fire suppression events. Revisiting the Dillon report recommendations, which are still accurate and relevant, should provide options to increase capacity and reliability of firefighting water supply, in the medium to long term, for the Town of GBW and the adjacent LSDs. 30. TSI recommends that locations of both fire stations remain unchanged in the long term. The only exception would be if there was a future desire by Council to relocate a fire station on available land with, or with the potential of, a permanent year-round unlimited water supply.

63 | Page

31. TSI recommends that medium term planning consist of a feasibility study to renovate Station 1 in order to provide more usable apparatus floor space.

32. TSI recommends that long term plans for Station 2 include taking over the entire building to allow increased space for apparatus and offices.

33. TSI recommends medium to long term planning for the addition of more suitable shower facilities at both fire stations.

34. TSI recommends the development of mandatory inspection, regular testing and maintenance procedures required for the primary water supply sites (in GBW and LSDs), that involve or require any form of mechanical assistance (pumps) for use.

35. TSI recommends that as part of medium range strategic planning (3-5-yrs and beyond) GBWFRD Administration, CAO and Council review the 2015 Fire Fighting Water Supply Plan - Dillon Consulting.pdf, to aid in establishing priorities to improve access to new or additional water sources, in order to increase the quantity of water available in support of firefighting operations.

64 | Page

Fire Prevention, Investigation, Inspection and Public Education Fire Prevention Fire prevention programs are in place to ensure the safety of the most vulnerable. These programs have saved more lives than then all the fire departments in the Country combined through the creation of fire and building codes and their enforcement. Local and Provincial fire prevention initiatives ensure the codes are followed through the practice of inspection and enforcement.

Fire prevention in New Brunswick falls under the direction of the Office of the Fire Marshal (OFM). The Fire Marshal designates the Fire Chief as his local assistant to ensure fire prevention services are carried out according to the Fire Prevention Act. As the local assistant to the Fire Marshal the Fire Chief is responsible to investigate the cause and origin of all fires in their jurisdiction.

The OFM may be called upon to assist in cases were a fire causes; ● Death ● Injury ● High dollar loss ● Or is suspicious in nature Currently, because of a lack of experience the GBWFRD does not conduct local fire investigations and defaults this service to the OFM.

Pre-Incident Planning Fire Prevention activities should include pre-incident planning of target hazards as identified by FD administration. Pre-Incident Planning can and should be incorporated into firefighter and Officer training and development.

Pre-incident planning should be adopted as a regular practice within fire prevention and fire operations to gather information on specific target hazards. All this pre-gathered information would be an invaluable asset for fire command and staff should an incident occur. It must be accessible and supplied in a usable form. It could be available in hard copy form (binder) and kept as part of the apparatus inventory, online as a computer-aided dispatch system (CAD) component, or both. Pre-incident planning also instigates the relationship between your Fire Department and its commercial, industrial, and institutional stakeholders, allowing each party to understand and explore response capacities, capabilities, and expectations.

Pre-incident planning is a cost-effective, proactive endeavour that should be implemented as part of the local fire and emergency services operations involving a collaborative approach between Fire Prevention and Operations. Creating an Organizational Goal in this regard will ensure compliance by staff. Setting a goal for minimums, such as completing one Pre-incident Plan every quarter, would bode well for a Fire

65 | Page

Prevention Program, and assist in the justification for training and a demonstrated need for appropriate apparatus. It also promotes officer development, teamwork and trust between Fire Administration and Staff. There are numerous benefits to pre-fire planning process including: ● ● ● ● ● ● ● ●

●

Fire Department interaction with Information could include: stakeholders 1. Building layout and size The Public see the fire service in a 2. Type of occupancy, commercial, industrial, preventative role institutional 3. 24-hour building manager or maintenance contact Mentorship opportunities throughout the information ranks 4. Type of construction 5. Identify local hazards and potential for an incident Training opportunities regarding different to occur building systems and sharing results 6. Location of the main fire alarm panel 7. Hazardous materials storage areas Enhancing teamwork among the staff 8. Fire protection systems and equipment 9. Familiarization with on-site evacuation plans Creating competence and increasing 10. Initial response capabilities and capacities confidence for Officers (minimums) 11. Initial response actions Compiling useful information on complex 12. Gauge industry capabilities or large structures 13. Gauge industry expectations Familiarisation of building ingress, egress, fire alarm panel and sprinkler system locations, etc.

Having pre-planning information available can make an overwhelming situation more manageable

Pre-Incident Planning is not required in defining a LOS, but should be included as a component of fire service functions and preparedness.

Public Education activities of the GBWFRD include: ● Fire Station Open House during Fire Prevention Week ● Station Tours ● School Visits ● Special Events ● Operation Christmas Miracle Staffing challenges make it difficult to maintain any capacity in fire prevention and education programs.

There are numerous resources available to help create and build capacity in fire prevention and education for local fire departments including the following programs from the OFM, NB. ● Installing and Maintaining your Smoke Alarms ● Fire Escape Planning At work, at Home ● Smoking…A Fire Hazard ● Portable Fire Extinguishers Another resource available to communities is the FireSmart program. This collaborative program is built on partnerships with residents, industry and local government and is designed to assess and mitigate

66 | Page

wildfire risk within communities by managing fuel and vegetation to reduce the potential impact of a wildfire. It begins with assessing the risk, then progressing to work with residents and business owners through education and information sharing, often resulting in organised community activities intended to produce tangible results that reduce wildfire risk. Resources available to program participants includes on-line courses and education, training for fire departments, a downloadable app for use by homeowners and a neighbourhood recognition program that recognizes communities for their exceptional commitment to FireSmart and risk reduction. The knowledge and awareness gained through the program should be used by the fire department to pre-plan and train for wildfire events. Resources are available through FireSmart Canada Resources Archive | FireSmart https://firesmartcanada.ca/ 36. TSI recommends that the GBWFRD consider long term initiatives for building greater capacity in fire prevention and education in hopes of establishing a local fire prevention and public education program as a commitment to enhance protection of the community, the public and its most vulnerable residents.

37. TSI recommends that the GBWFRD build capacity in the field of fire investigation through the empowerment of interested Department Personnel.

38. TSI recommends the development of Pre-Fire Planning of target hazards, critical infrastructure and special occupancies as part of the Fire Prevention Portfolio, and that the plans be designed in a way that allows access to information for responding crews.

Fire Inspections What are fire inspections and why are they done? The National Fire Protection Association’s Life Safety Code 101 (2012) identifies a goal of the Life Safety Code as providing surroundings in which the occupants are “reasonably safe” from fire by: 1) protecting those who are not aware of a fire situation developing and, 2) improving the survivability of those in close contact with the fire (Ch. 4).

Further, there is a requirement for Regional Fire Inspectors to enforce provisions of the Fire Protection Act of New Brunswick. Currently GBWFRD does not include fire inspections or enforcement as part of their service. It is completed by the OFM as noted below: TIS Fire Inspections – Regional Fire Inspectors are responsible for fire safety inspections throughout the Province. “They may from time to time inspect hotels, apartment houses, hospital facilities, schools, churches, theatres, halls, factories and other places in which numbers of persons work, live or congregate for any purpose, with a view of determining whether precautions against fire and the spread of fire, and the means of exit in case of fire, are adequate and satisfactorily maintained, and to directing such alterations to be made and such precautions to be taken as he considers necessary for the safeguarding of persons and property.” Fire Prevention Act, Section 4(2), (c).

67 | Page

From:

Working Together for a Safe New Brunswick Office of the Fire Marshal Information Guide

Reference: chrome-extension://efaidnbmnnnibpcajpcglclefindmkaj/https://www2.gnb.ca/content/dam/gnb/Departments/pssp/pdf/Safety_Protection/Fire-Feu/InformationGuide.pdf

Ultimately the intent is to prevent fires, and if they occur, to avert deaths and injuries from fires before the fire department arrives on scene. Essentially from a fire risk perspective, fire departments should be in the business of putting themselves out of business. Conducting inspections enables fire department staff to recognize life safety hazards before a problem materializes, then work with the property owner/occupant to mitigate the issue. Inspections also familiarize firefighters with a building, enabling them to assemble information on the occupancy and aiding in the development of pre-incident plans - a valuable resource in the event of a fire. Inevitably, the objective of a fire safety prevention program falls into two categories: preventing fire ignition and managing the impact of a fire (NFPA 550).

Benefits of Conducting Fire Inspections • Increase the knowledge of fire department staff with building safety systems in their area; • Establish a relationship and rapport with building owners/operators; • Assist building owners/operators with planning for and managing emergencies in their facilities; • Improve life safety for building occupants by ensuring building safety systems are functioning and code compliance is achieved; • Improve life safety for responders; • Identify and help rectify deficiencies in fire and life safety systems in occupancies requiring such systems; • Minimize fire dollar loss in the event of a fire; and • Help ensure modifications and renovations in occupancies meet current fire code requirements.

68 | Page

Communications Operational communications are conducted using the new Provincial Trunk Mobile Radio (TMR) system.

Regional dispatch is completed from the dispatch centre in the City of Saint John. It was noted that the current dispatch system does not allow for automatic aid dispatch capability between municipalities.

Front line apparatus is equipped with mobile and portable radios (P25) for use with the TMR system.

GBW maintains their existing municipal radio systems and the GBWFRD makes use of it for their internal call notification using a pager system. The pager system provided as part of the TMR system proved to be cost prohibitive, so is not in use.

Internal communications between staff is accomplished through the use of the Microsoft Teams App. iPads using cellular technology networks are used to aid response allowing digital mapping.

69 | Page

HUMAN RESOURCES – PEOPLE OPERATIONS

70 | Page

HUMAN RESOURCES – PEOPLE OPERATIONS The GBWFRD consists of some forty-five dedicated members. This includes the three full time staff: Fire Chief, Deputy Chief, and full time Training Captain as well as the volunteer District Chiefs, Officers and the rank and file. The organizational structure is that of traditional fire services with a clear reporting structure. Maintaining adequate staffing during the day is an identified challenge. The current solution to bridge the gap is the fulltime Chief, Deputy Chief and Training Captain ability to respond during daytime hours. During our workshop TSI heard from one of the firefighters, that he joined “to become a firefighter, and stayed because of the team.” No higher compliment can be paid to the fire service members serving Grand Bay-Westfield and echoes the pride we saw and felt from the members of the fire Grand Bay-Westfield Fire Rescue Department.

Despite the satisfaction the firefighters expressed, the lack of human resources during the day continues to be the most significant challenge. A recent article written for the CAFC Magazine regarding a survey by the NFPA estimated that in 2016 there were an estimated 126,000 volunteer firefighters across Canada. In 2021, the Canadian Association of Fire Chiefs (CAFC) worked with the National Advisory Council (NAC) and launched the first Great Canadian Volunteer Firefighter Census. In short, the 2021 census revealed that Volunteer Firefighters' numbers dropped from 126,000 in 2016 to 99,919 in 2021, of note 47% of departments participated in the survey in New Brunswick. There are several contributing factors for the decline, but the significant reduction is a troubling trend for the industry and the people it protects. Therefore, this situation is not unique to the Grand Bay-Westfield and remains a critical concern industry-wide.

Current staff continue to provide dedicated, uninterrupted service to the residents of Grand Bay Westfield and surrounding area. The strength of the GBWFRD is its staff and their collective experience.

Regular meetings and fire practice occurs every Monday.

During engagement with the volunteer staff, it was felt there is some uncertainty about who they directly report to for any situation that doesn’t involve an actual response. The firefighters thought “having a Lieutenant be responsible for a specific group of people (Platoon) would still follow the chain of command and allow for people to have clear reporting lines.”

39. TSI recommends each of the Lieutenants have an assigned group of firefighters (Platoon) that they are responsible for, to provide reporting clarity for the members.

71 | Page

Recruitment and Retention Recruitment methods currently in place for the GBWFRD includes a recruitment package that is available should anyone inquire, as well as using the Town’s website for recruitment information and application forms. Recruitment is no doubt bolstered by the Grand Bay- Westfield Fire Rescue Facebook page. Other forms of recruitment could be the product of fire prevention activities and public relations.

Fire Station open houses and fire prevention week activities produce valuable recruitment opportunities. A partnership with local high schools to promote vocational programs such as a fire cadet program where students can become cadets and work toward an NFPA 1001 qualification, for credit, could be another opportunity. Regardless of recruitment methods and initiatives it is paramount that staffing levels be constantly evaluated and that active recruitment be a constant endeavour.

Retention of staff is also a key concern for volunteer Fire Services. Training staff is very time consuming and expensive, therefore it is paramount to ensure retention of the investment in highly trained and experienced human resources. Leadership is a crucial factor in retention of staff, as is a workplace environment that is inclusive, supportive, challenging and collaborative. Staff who are engaged will be more productive and professional in their work and will find it very rewarding.

Recognition of staff and their service is another step in retaining staff. Knowing that their service and efforts are valued pays enormous dividends in retention and productivity. The simple mention of a job well done after a recurring event is a pure acknowledgement of their worth. During out interviews we heard: “Although we still feel supported as it is shown in our equipment, our honorariums have not increased and actually have gone down. Also not having the volunteer appreciation dinner this year was noticed.”

GBWFRD firefighter during interviews COVID restrictions were largely responsible for the lack of an appreciation dinner in the previous two years, reinstating the annual formal event to thank the staff and recognize personal and professional achievements will go a long way to having the members feel appreciated. Positive work environments also lead to positive interpersonal relationships that promote teamwork, and the Fire Service is all about teamwork. Refer to Appendix IV for recruitment and retention initiatives and ideas.

Through the interviews, TSI learned that Council was very supportive of their volunteer firefighters “a letter came to the council from an elderly couple whose snow built up over the chimney, and after a phone call, the FD went up and cleared the roof for them. Very proud of their efforts in the Community, which haven’t gone unnoticed.”

Councillor for Grand Bay-Westfield TSI found that Council wants to ensure that the firefighters are provided with the best equipment the municipality can supply and feel that by providing that gear they are showing their support for their

72 | Page

efforts. Although this might be the intention when interviewing the firefighters, they wished that Council would come and meet them.

“Would like to invite them (Council) to come see what we do at training or on a day to day basis.

I feel like they think they have an understanding of what we do but don’t really understand.”

GBWFRD firefighter during surveys It would be beneficial to have an event where Council could meet the firefighters and possibly participate in simple daily activities the firefighters undertake, led by the firefighters. It would provide the added benefit of allowing the firefighters to meet Council and better understand their role with the department.

40. TSI recommends that an event be created that would allow Council to meet the firefighters and possibly participate in simple daily activities the firefighters undertake.

Training As mentioned previously the training facility is well designed and built to provide the necessities for in house practical training of all firefighter competencies. The current structure of the fire department administration includes a full time Training Officer position (Captain) responsible for the development and delivery of training programs, maintaining accurate training records, developing and recommending operational procedures, and response to fire, rescue and medical emergencies at a supervisory level are all contained in the job description for this position.

In order to better understand the training being delivered TSI interviewed the Training Officer and IN THE HEAT OF THE BATTLE, YOU the volunteer firefighters in all aspects of training.

When surveyed, training was one of the areas with the most robust responses. It should be noted that 100 % of the respondents felt that they were trained to do the job asked of them.

When questioned further about training and their abilities the results were as follows: Exterior Attack Firefighting: ● 27% felt that they were extremely skilled while, ● 61% felt they were moderately skilled, and ● 11% felt they were somewhat skilled.

73 | Page

DON'T REMEMBER VERY MUCH. YOU THINK SLOWLY. YOU ACT BY INSTINCT, WHICH IS TRAINING. SO, YOU'VE GOT TO BE TRAINED FOR BATTLE TO REACT EXACTLY THE WAY YOU DID IN TRAINING".

– ADMIRAL ARLEIGH BURKE, USN

Figure 18 Results from Firefighter Survey

These numbers would indicate a lack of confidence to manage one of the core competency skills necessary for firefighters. Moreover some of the comments included the request for more dynamic training, and scenario based training, all of which would help build confidence and ability in the response personnel.

41. TSI recommends further training on the basics of Exterior Attack in accordance with NFPA 1001 (2019) FF 1; 4.3.1, 4.3.8. 4.3.10, 4.3.13, 4.3.14, 4.3.15 and include the Job Performance Requirements (JPR’s) listed in the Standard to ensure confidence in all members ability to complete Exterior Attacks.

42. TSI recommends that Live fire training is refreshed annually and should be offered to all members of GBWFRS who are minimally NFPA 1001 level 1 certified, and should follow NFPA 1403.

Further results from the survey revealed; 45% of respondents felt somewhat skilled in Interior Fire Attack, 50% felt moderately skilled in Wildland Firefighting, 61% felt moderately skilled in Vehicle Rescue, 55% felt moderately skilled in Medical Response, 83% felt moderately to extremely skilled in Apparatus Operation and Driving, 79% felt moderately to extremely skilled in Pumping Operations.

While these numbers reflect a fire service that can boast over 50 percent of personnel is consistently confident in their abilities in the core services it also serves as a reminder about the importance of continuous training in all aspects of the core services provided by GBWFRD.

74 | Page

While reviewing the job description and interviewing the Training Officer, TSI believes the position, in addition to scheduling training, should be responsible for helping in the delivery of the weekly training, and any additional training as identified or necessary. Hours of work should be adjusted to reflect the necessary evening and weekend training this would require. Additional certification for the Training Officer position will improve the departments ability to further the members certification and should include the following courses: ●

NFPA 1500 (Firefighter Department Occupational Health and Safety),

●

NFPA 1006 (Standard for Technical Rescue Personnel Professional Qualifications),

●

NFPA 470 (Hazardous Materials Standards for Responders).

This position should also be versed in NFPA 1403 the Standard for Live fire evolutions in order to be able to lead annual live fire exercises.

43. TSI recommends that the Training Officer position achieve additional certification in the following NFPA standards: a. NFPA 1500 (Firefighter Department Occupational Health and Safety), b. NFPA 1006 (Standard for Technical Rescue Personnel Professional Qualifications), c. NFPA 470 (Hazardous Materials Standards for Responders).

44. TSI recommends that the Training Officer position help deliver the weekly and any additional training provided to the Volunteer firefighters.

45. TSI recommends that the Training Officer Job Description be updated to reflect the additional suggested duties and qualifications.

Rounding out the training discussion TSI discovered there was an expression of interest in additional training that would include scenario-based training run in real time, preplanning of all larger buildings like the schools, assisted living facilities, rinks and ferries. 50% of respondents asked for additional training on medical response calls as it was the leading type of response provided by the department.

46. TSI recommends that a yearlong training plan be developed that includes pre planning and familiarization of larger buildings.

47. TSI recommends that real time scenario-based training be implemented for some of the training events.

48. TSI recommends that medical training take place at least once a month as it is the leading call GBWFRD responds to, this would also be a great opportunity to integrate real time scenarios.

75 | Page

Volunteer Management During the on-site visit with the Officers and firefighters it was obvious that there was a good relationship between management and staff with a general ease amongst everyone and lots of goodnatured ribbing found often in well-functioning fire halls. Managing the Volunteer firefighters is in the municipal job descriptions of both the full time Chief: “Manage all aspects of human resources for the Department including staffing, recruitment and selection,

retention, scheduling, supervision, coaching, succession planning, personnel issues and performance management and all other aspects of people management practices.”

And Deputy Chief: “Demonstrated ability to maintain discipline and the respect of the membership, to lead and command firefighters effectively and to instruct them in the proper methods, techniques and the use of fire apparatus and equipment.”

One of the things TSI heard during our workshop was the lack of discipline necessary to enforce the rules when they’d been repetitively broken by the firefighters. This can have the unwelcome side effect of leading the staff as a whole to believe they can do whatever they want, and the rules don’t really apply. One of the things that will help both management and staff is the creation and completion of performance reviews. There were no documents given to TSI in terms of performance management, or performance review for firefighting personnel. Implementation of an annual formal performance review is a great way to engage the firefighters giving them the opportunity to know what they‘re doing well, where they can improve, and most importantly, what expectations their leaders have of them for the next year. In addition to that it allows the Officer to performance manage the firefighter by helping them set goals for themselves and overcoming any obstacles they self-identify, and enforcing consistent discipline as required based on agreed set standards.

49. TSI recommends that the creation of a performance management system which includes an annual performance review be created and implemented.

When researching the roles and responsibilities of both Officers it came to the attention of TSI that their job description in the SOG’s are different from the one for the Municipality. Clarifying their role both for the Command Officers and the volunteers they supervise would provide clarity and direction.

50. TSI recommends ensuring that all job descriptions are the same in all documents.

51. TSI recommends creating a job description for the volunteer district chiefs identified in the Organizational chart but missing in the SOG’s job description.

While reviewing the job descriptions and requirements of the Chief staff and Officers it was noted that there wasn’t a requirement to have any management courses. It falls upon the officers to manage the most critical asset, the volunteers themselves. To help facilitate the move from firefighter to officer or

76 | Page

chief officer courses such as NFPA 1021 Standard for Fire Officer Professional Qualifications is a great place to start. Another great resource is the book published by Fire Engineering From Buddy to Boss: Effective Fire Service Leadership, by Chase Sargent. Grand Bay-Westfield is no different than the many fire service organizations TSI has had the opportunity to work with, they have great people in leadership positions that manage incredibly diverse emergency scenes, complex budgets and equipment yet have little training in personnel management and HR practices. Investing in a complete fire officer training program for the Chief, Deputy Chief and command staff is money well invested as the benefit for the organization is immeasurable in terms of efficiency and effectiveness not alone firefighter retention and the associated costs.

52. TSI recommends developing Officer training programs, and ensuring all officers receive ongoing training.

Occupational Health and Safety Standard Operating Guidelines are missing an actual section that truly reflects the requirements of Worksafe New Brunswick, the Occupational Health and Safety Act and what is needed to meet the CSA standards required. This should be the first section modified in the existing SOG’s and requires attention as soon as possible.

To be addressed immediately is the requirement by OHS to have a Respiratory Code of Practice; General Regulation - Occupational Health and Safety Act N.B. Reg. 91-191 When respiratory protective equipment is required, a written code of practice is developed. The code must address the proper selection, care, use, maintenance, and fitting of the equipment to be used.

The code of practice:

77 | Page

○

Complies with the CSA standard Z94.4-93, "Selection, Use, and Care of Respirators".

○

Is sufficient to protect employee health and safety when the code is followed.

○

Is developed in consultation with the joint health and safety committee or health and safety representative, if any, or with employees if there is no committee or representative.

○

Is readily available to an officer or affected employees upon request.

○

Is implemented and adhered to in the workplace.

○

Is followed by employees.

When developing a Respiratory Code of Practice it is imperative to ensure it meets the CSA Z94.4-11 Standard, specifically Section 8 Training, and Section 9 Respirator Fit testing, during the review of all SOG’s nothing is written about the critical need to ensure Fit testing is completed annually.

A risk and hazard assessment should exist for all positions in the Fire Department including Chief, Deputy Chief, District Chiefs, Captains, Lieutenants, and Firefighters. It should minimally:

● Identify hazards. ● Analyze or evaluate the risk associated with that hazard. ● Determine appropriate ways to eliminate or control the hazard.

When determining the appropriate ways to eliminate or control the hazards Worksafe New Brunswick and OHS suggest: Elimination (including substitution): remove the hazard from the workplace, or substitute (replace) hazardous materials or machines with less hazardous ones.

○ Engineering controls: includes designs or modifications to plants, equipment, ventilation systems, and processes that reduce the source of exposure.

○ Administrative controls: controls that alter the way the work is done, including timing of work, procedures and other rules, and work practices such as standards and operating procedures (including training, housekeeping, and equipment maintenance, and personal hygiene practices).

○ Personal protective equipment: equipment worn by individuals to reduce exposure, such as contact with chemicals or exposure to noise.

These methods are known as the “hierarchy of control” because they should be considered in the order presented (it is always best to try to eliminate the hazard first).

Hazard identification is an ongoing process. It needs to be done whenever your workplace introduces new processes, equipment, materials or tasks to ensure that the impact is fully understood and addressed.

53. TSI recommends the creation of a section in the SOPs specific to OHS requirements. The OHS section should include; a. a Hazard Assessment created for each position on the FD i.e. Chief, Deputy Chief, District Chiefs, Captains, Lieutenants and Firefighters, specific to all hazards of firefighting including training and work on the fire floor, that ensures the hazard is managed by the hierarchy of control.

78 | Page

b.

a Respiratory Code of Practice as outlined in the OHS Act using CSA Z94.4-11 to ensure proper adherence to regulations.

c. Frequency for FIT testing of all firefighters wearing SCBA in accordance with CSA Z94.411 Standard.

54. TSI recommends that the SOG’s include standard checks on all equipment in the fire service and documentation on the standard check frequency, maintenance and repair should be created.

Standard checks should list how frequently (for example) hose is to be tested and to follow manufacturer instructions for care, use and maintenance, which should be included in the Guideline.

The task and documentation of the task helps form strong OHS compliance.

The current SOG 405.01 has the firefighters cleaning their own gear in the provided industrial washing machine, which is acceptable practice, however no documentation was provided for the record of maintenance of each set of gear (bunker pants and jackets). Additionally, after exposure to fire and the residue of fire as well as any pathogens, it would be a good practice to have the gear professionally cleaned and repaired as necessary. Creation of documentation of all cleaning and maintenance of gear is recommended.

55. TSI recommends having the PPE of the firefighters cleaned professionally after every exposure to fire and fire residue as well as any pathogen exposures (i.e. blood, bodily fluids) or at least annually.

56. It is also recommended to keep complete records of all cleaning and repair done to the PPE for the life of the PPE. 57. TSI recommends amending SOG 405.1, 3. B. to say that “No alterations shall be made to the PPE, unless professionally done.”

Perhaps one of the essential document recommendations in the last few years is ensuring that there is decontamination of fireground turnout gear. Decontamination on the fireground of turnout gear and equipment (SCBA, helmets, gloves, boots, safety glasses etc.) is critical for protecting firefighters from unnecessary exposure to dangerous chemicals.

Because of this, turnout gear and equipment decontamination should be part of regular training so that it becomes second nature. It is understood that firefighters are exposed to contaminants. Those contaminants soil firefighter PPE and other fire service gear. Cross-contaminated equipment and gear are suspected of adversely influencing long-term firefighter health and wellness and is listed in the Workers Compensation Act of presumptive cancers. In other words, if you were a firefighter in New Brunswick diagnosed with skin cancer, it is presumed that you got that cancer because you were a volunteer or full-time firefighter. Positive action must be taken to control our exposure to contaminants sooner rather than later.

79 | Page

NFPA 1851 speaks to the importance of maintaining clean gear directly correlates with surviving exposure to pollutants. Further, NFPA published three reports; PPE Cleaning Validation, Fire Service Gear Cleaning Validation and finally, and improved PPE Cleaning Best Practices and Exposure Assessment through the NFPA Research Foundation on the importance of decontaminating gear. It is essential to have procedures or policy to address this and to inform firefighters of their right and responsibility to ensure their gear is checked and cleaned regularly.

58. TSI recommends that GBWFRD create a procedure that includes regular decontaminating of all fire gear.

In a 2020 Firefighting in Canada article author Laura Aiken wrote; “Over the last decade, cancer has really come into its own as a recognized threat to firefighters.

Rightly so. A recent report published through the University of the Fraser Valley in British Columbia — Canadian Firefighter Fatality and Injury: Trend Analysis of Association of Workers Compensation Boards of Canada (AWCBC) Fatality and Injury Claims 2006-2018 — challenged the notion that the decontamination processes that have gained traction are enough to stop the escalating trajectory. The study showed that cancer caused 90 percent of firefighter deaths in 2018, up from 85 percent in 2015. These percentages in human suffering translate to 738 Canadian firefighters' lives lost from 2009 to 2018, averaging about 74 per year.”

Understanding the staggering statistics regarding firefighter occupational cancers makes it clear that steps must be taken to promote a clean cab system. The idea is that the most carcinogenic materials are isolated from the clean interior of a cab so that contaminants aren’t carried into our fire stations through the bay and eventually and inadvertently home with us in our vehicles. Some things that can be accomplished include ensuring the apparatus's interior surfaces are regularly cleaned. By ensuring that the equipment we use regularly is cleaned and decontaminated after use we won’t have to worry about where it’s stored.

59. TSI recommends that as a first step towards a clean cab policy Grand Bay-Westfield Fire Rescue Department adopt a clean cab initiative which involves cleaning the equipment used at fires and ensuring that the interior of cabs is washed and decontaminated prior to the next call.

80 | Page

BUDGET & FINANCIAL MANAGEMENT

81 | Page

BUDGET AND FINANCIAL MANAGEMENT As one of the Project deliverables TSI was asked to determine the cost of providing each of the services delivered by the Fire Service. This activity is multifaceted and the relationship between providing services and the related costs is a complex one. Generally, the cost of providing core services includes aggregated general operating costs, wages and myriad other expenses spread across the Department and potentially the Town; therefore, it is difficult to determine exactly what the cost of each particular service will be. Review of historic call volumes for all call types enables FD administration to budget and manage expenses and costs directly related to services as a whole.

Some examples of budget impacts to provide a service include costs related to the initial training required, specific equipment and maintenance of that equipment, staff/personnel associated costs, ongoing skills, abilities and competency development and maintenance, and in some cases the costs of Certification. Add into these variable costs of fuel and utilities etc., and the layers of cost analysis start to build.

Generally, the physical delivery of most core services by GBWFRD will cost very little. All costs for core services, except for wages and honorariums, are incurred in the initial purchase of capital operational equipment and initial training of staff. Understandably establishing and maintaining the Fire Department is very expensive. Service delivery is the product of all the investment in capital purchases of apparatus, equipment, PPE, SCBA, rescue tools, etc., and the training provided to staff members. The most significant ongoing cost is that for Labour.

The cost for services is greatly increased with the addition of specialty or extended services, like Medical First Response or Ice Rescue, and there are many. Keep in mind that many extended services involve the increased risk associated with low frequency, high consequence events. The reason extended services are so expensive is that specialty equipment and training are often required. An example would be Water or Ice Rescue. To train a single firefighter in Ice Rescue to the operations level would cost approximately $500, and a refresher within two years would cost the same. So in the first 3 years of providing Ice Rescue to 40 members, the costs for training would be $40,000. So the question becomes whether or not maintaining the service is viable. The investment in time by Volunteers would be 640 hours based on two eight-hour training days. The GBWFRD five-year stats indicate that they have completed about four water/ice rescues per year. Another option would be to train to an awareness level at a cost of $50 per member ($2,000), and an estimated time commitment of 160 hours. Of course this only allows response to ice rescue incidents in a support role, not an active rescue role. The cheaper secondary option is fraught with liability concerns.

The key to controlling these costs may be to ensure that a demonstrated need for the extended service exists and to align those with what Council is willing to support as a way of an extended service. First Medical Response requires recertification in CPR annually, and at 67 percent of the call volume the cost for labour takes a dramatic rise. Other ways to save on costs associated with services is to provide inhouse training. Build an internal capacity in training for core and extended services if possible. Costly

82 | Page

services such as High Angle Rescue and Hazmat (tech level) often have large urban and metro Departments struggling with the associated cost and provision of those extended services. It is not that it can’t be done or shouldn’t be done. It should be a business choice driven by sound reasoning, information and planning, rather than an emotional response to a perceived need.

Financial Review A review of the Town’s finances was completed; this process included interviewing the Chief Financial Officer (CFO). The CFO was recently hired and had only been in the position for 3 months. The interview was a comprehensive and in-depth discussion which included discussions regarding the operating and capital budgets, capital reserves, agreements, and financial processes.

Methodology The CFO was very helpful in providing all the financial documents required to complete the review, including past and current budget, regional fire agreements, the audited financial statement, and past financial reports.

The interview information and financial documentation formed a good base from which to analyze the Town’s Fire Services. Our review included a review of recent financial documents, including: ● The 2021 and 2022 Fire operating budgets ● The 2021-year-end actuals ● The Town’s long term capital plan ● The 2021 Consolidated Financial Statement ● The Local Service District Fire Service Agreement ● The fire department’s capital assets

Observations The following are detailed observations regarding the Town’s revenue and expenditure budgets. The intent is to identify what the Town is budgeting and to provide comments on the content of the budget amount. The 2022 budget was used in this analysis and the comments will be based on it as well.

The Town has regional fire agreements with the neighbouring Local Service District. The agreement was signed in September 2020 and does not have a termination date. The agreement is for Grand Bay Westfield to provide fire services to this area for a fee. The fee is determined by the percentage of tax base which is applied to the gross expenditure fire budget each year.

General Comments on Budget The Town budget is put together using a Microsoft Excel workbook. Adagio software is their general ledger in processing all financial information. The EXCEL workbook contained good information from previous years including several years of approved budgets and historical actual data.

Using historical financial information is critical in preparing a budget; knowing where you came from is needed to see where you are going. The Town’s fire budget is sound, and there should be confidence in the budget amounts that are presented.

83 | Page

The Town budgets for $182,806 in revenue and has total expenses of $759,676. The fire department requires $576,870 (net) in tax revenue to fund its operations. The total expenses for the fire department account for 11.5% of the total budgeted expenses.

The table below is a summary of the 2022 budget and the amounts in summary categories. The table also shows the percentage of each general category as a percentage of the total budget.

Table 4: Grand Bay-Westfield Fire Rescue Service 2022 Summary Budget

The table below provides the detailed account information for each summarized section.

This is the detailed budget report that provides individual account budgets that roll up into the summary report. The report also shows the percentages of each account budget versus the section total.

84 | Page

Table 5: Grand Bay-Westfield Fire Rescue Service Operating Budget - by Account

85 | Page

Revenue The Town only has one fire revenue source. It is the funds received from the agreement with the Local Service District. The 2022 agreement has a budget of $182,806. This revenue amount funds 24.1% of all operating expenses.

Expenses The Town budgets $759,676 in operational expenses for two fire stations, within eight (8) summarized budgeted line items.

Salary, Wages and Benefits The Town budgets $420,684 in salary and benefits. This amounts to 55.4% of all expenses.

The details of the salary and benefits budget includes: ● ● ●

Wages budgets for the Fire Chief, Deputy Chief, Training officer and 3 full time staff. ($234,054) The Town provides honorariums to all volunteer firefighters through an honorarium policy. The total annual budget for firefighter honorariums is $107,800.

The full-time staff are provided employee benefits. These benefits have an annual budget of $78,830. These benefit costs are broken down into these categories: o CPP contributions - $10,499 o EI contributions - $3,736 o Pension plan - $20,267 o Medical - $12,618 o Group insurance - $5,622 o Workers’ compensation fees - $26,088

Business and Training Expenses The business and training expenses have an annual budget of $84,520 which accounts for 11.1% of all expenses.

The budget includes items such as training, dues, memberships, clothing allowances and immunizations.

Some of the key budget items include FF training $19,300, Association fees of $14,000, recruitment for $12,500 and membership fees of $12,620.

Contracted and Professional Services The contracted and professional services budget is $50,558 which accounts for 6.7% of total expenses.

The budget details are broken down as follows: ● $31,000 - Dispatch Services ● $9,266 - General liability insurance ● $200 - Content insurance ● $10,072 - Vehicle insurance

86 | Page

Supplies and Materials The supplies and material budget is $25,900 and accounts for 3.4% of the total expenses.

The budget details are broken down as follows: ● ● ● ● ●

Diesel / Gasoline - $10,000 Office supplies - $2,200 Petty cash incidentals - $200 Coffee supplies - $1,500 General supplies - $12,000

Repair and Maintenance The vehicle repair is $39,750 and accounts for 5.2% of total expenses.

The budget details are broken down as follows: ● ●

Vehicle repair and licences - $32,250 Equipment repair - $7,500

Equipment The Town budgets $39,425 in equipment costs and accounts for 5.2% of total expenditures.

The budget details are broken down as follows: ● ● ● ● ●

Communication equipment - $7,000 Office equipment - $800 Fitness equipment - $100 Compressor / Cascade system - $2,500 Operational equipment - $29,025

Building Costs The Town budgets $86,870 in building costs and accounts for 11.4% of total expenditures.

This budget includes all building costs including utilities and maintenance. The Town budgets one amount for these areas. No breakdown of the budget was provided.

The budget details are broken down as follows: ● ●

Centrum building costs - $43,852 Station 2 building costs - $26,822

87 | Page

Other Costs The Town budgets $11,969 in other costs and accounts for 1.6% of total expenditures.

The budget details are broken down as follows: ● ●

Water source - $3,730 HST - $8,239

Capital Reserves The Town does not have a dedicated fire reserve and does not budget an annual contribution to reserve for future fire capital projects. If there is a year-end surplus, then these funds are directed to reserves.

The Town operates with one general capital reserve account which is used to fund all capital projects including roadways and utilities. The CFO advised that the Town has $1.2M in capital reserves and $650K in operating reserves.

The Town has several fire apparatus vehicles that will need to be replaced in future years. Several of the units are nearing the end of their useful life. The table below shows the fire apparatus and vehicles by type, the estimated replacement cost, and the expected useful life of each unit. This information is used to calculate the annual depreciation for all fire vehicles. This amount of depreciation should be contributed to the fire capital reserve each year. The Town should be contributing $193,333 per year to the fire capital equipment replacement reserve.

Table 6: Grand Bay-Westfield Fire Rescue Service Estimated Vehicle Replacement Cost

Unit Type Inventory Units Large Response Vehicles

Replacement Cost (Estimate)

Total Cost

4

$750,000

$3.0M

Useful Life (in years) 20

1 4

$200,000 $75,000

$200K $300L

15 10

(Estimate)

Annual Depreciation $150K

(Engine, and Tanker)

Rescue Support Vehicles Total

9

$3.5M

$13.3K $30K $193.3K

60. TSI recommends that the Town should create cost centres for each fire hall. The cost centre budget should be created with individual accounts and backup for each budget amount.

61. TSI recommends that the Town should develop an operational equipment replacement plan.

The equipment inventory shows there are 652 individual pieces of equipment that the fire hall

88 | Page

uses. An operating fire reserve could be set up to fund the future replacement of major equipment such as turnout gear and SCBA equipment.

62. TSI recommends that the Town should create a capital fire equipment replacement reserve. A capital contribution to reserve should be budgeted in the amount of $193,333.

89 | Page

CONCLUSION & NEXT STEPS

90 | Page

CONCLUSIONS AND NEXT STEPS In order to ascertain the best course of action for the Town of Grand Bay-Westfield Fire Rescue Department the above recommendations have been presented to encourage further dialogue and discussion. Implementation of the newly developed Strategic Plan and accompanying Tactical Plan will assist in the Fire Service achieving Council priorities and meeting the needs of Grand Bay-Westfield’s residents into the future. The Town of Grand Bay-Westfield is uniquely positioned as a picturesque river Town and as the suburban partner to Saint John. This positioning and the forward-thinking progressive approach of the Fire Service combines to create the ideal opportunity to build a top tier organization that will futureproof the community in both liveability and prosperity. This endeavour will require collaboration, faith and trust from all parties in aligning Council, Grand Bay-Westfield Fire Rescue Services members and community.

Fruitful conversation will address all the strengths, weaknesses, opportunities and threats raised during the stakeholder consultations, interviews and surveys and provides the Administration with the necessary background information to make informed decisions on how to best proceed.

Communities are continuously evolving and ever changing therefore those organizations who can anticipate changes on the horizon, pivot when needed and maintain environmental and fiscal sustainability will be better able to achieve their vision for the future. By continuing to work collaboratively and in cooperation in service delivery, TSI believes the Town of Grand Bay-Westfield Fire Service is well positioned to become the leading voice in fire services.

Next Steps: ●

That the Fire Chief, CAO and his designates meet with TSI to review the report. Following the review of the report, TSI will facilitate a half day Strategic Planning workshop with the Chief, CAO and any senior administration with the Town. Depending on timing, this could happen via zoom in December or in-person in February.

●

That Council adopts the Fire Service Review Report prepared by TSI and instructs the Fire Chief and CAO to bring an action plan to Council within 45 days on the implementation of the recommendations.

Upon completing an examination of this Fire Service Review, the Grand Bay-Westfield Fire Service can assess each of the recommendations in this report and align each with its new strategic priorities and tactics.

A complete list of the recommendations is available in Appendix V and can be used to accept, reject or amend each recommendation; once complete, the Fire Service can assign leadership, resources and timelines to each accepted or amended recommendations to ensure successful implementation.

Ongoing engagement with employees and community members is essential as a measure of success in this initiative and TSI can continue to support you in those efforts should you so desire.

91 | Page

REFERENCES 1. National Fire Protection Association, NFPA Research Foundation Tech Notes Review of Responder Operational Procedures/Guidelines SOP/SOG FINAL REPORT BY: Lana Benny, Department of Fire Protection Engineering, University of Maryland, College Park, Maryland, USA. (March 2019) 2. National Fire Protection Association, NFPA 1700: Guide for Structural Firefighting, First Draft Report for Proposed Edition 2020. Accessed January 20, 2019, https://www.nfpa.org/codes-andstandards/all-codes-and-standards/list-of-codes-andstandards/detail?code=1700&tab=nextedition 3. Duncan, Michael D., Sally R. Littau, Margaret Kurzius-Spencer, and Jefferey L. Burgess.

“Development of best practice standard operating procedures for prevention of fireground injuries”. Fire Technology 50, no. 5 (2014):1061-1076.

4. Federal Emergency Management Agency (FEMA): US Fire Administration. Guide to Developing Effective Standard Operating Procedures for Fire and EMS Departments (FA-197). US Fire Administration, 1999. Available at: https://www.hsdl.org/?view&did=446438 5. Canadian Association of Fire Chiefs. (2021). Red Book Select Best Practice Guidelines. https://cafc.ca/page/redbook2021 6. General Regulation - Occupational Health and Safety Act N.B. Reg. 91-191 7. Respiratory Protection CSA standard Z94.4-93, "Selection, Use, and Care of Respirators".

8. NFPA reports: PPE Cleaning Validation, Fire Service Gear Cleaning Validation and improved PPE Cleaning Best Practices and Exposure Assessment through the NFPA Research Foundation 9. 2020 Firefighting in Canada article “Clean Cab” author Laura Aiken: https://www.firefightingincanada.com/cleancab/#:~:text=Clean%20Cab%20Canada%2C%20which%20specializes,decade%20and%20a%20hal f%20careers.

10. Alberta Fire Chiefs Association. Alberta Fire Services Core Competency Framework https://abfirechiefs.ca/ 11. NFPA response times: https://brucehensler.typepad.com/the-practical-fireman/2008/07/nfpa1710-1720-and-response-time.html

92 | Page

12. Standard of Cover: https://www.firefighternation.com/firerescue/standard-of-cover/#gref 13. FireSmart Canada Resources Archive|FireSmart: https://firesmartcanada.ca/ 14. Access Rescue, Ice Rescue: https://accessrescuecanada.org/ice-rescue 15. Fire Underwriters Survey: https://fireunderwriters.ca/Grading/Superior-Tanker-Shuttle-Service 16. NFPA 1710, 1720, and response time https://brucehensler.typepad.com/the-practicalfireman/2008/07/nfpa-1710-1720-and-response-time.html

93 | Page

APPENDICES

94 | Page

APPENDICES Appendix I Operational Directive Appendix II Level of Service Sample Appendix III Service Matrix and Alberta Fire Services Core Competency Framework Tool Appendix IV Recruitment and Retention Initiatives Appendix V Recommendations Appendix VI Level of Service Options

95 | Page

Appendix I Operational Directive (Sample) Operational Directive YY MM DD PURPOSE: To ensure all personnel are aware of the new (document, policy, procedure, guideline, order) , and are familiar with it.

SCOPE: Applies to all Grand Bay-Westfield Volunteer Fire Rescue personnel when doing/performing XX. GENERAL: The Standard Operating Guidelines, policies and procedures as adopted by Grand Bay- Westfield Volunteer Fire Rescue Department in conjunction with the Fire Services Risk Assessments, and Operational Directives will form a complete document.

PROCEDURE: Effective immediately all personnel within the scope of this Directive adhere to the new (document, policy, procedure, guideline, order). All Officers are to sign the Directive and post it and the enclosed (document, policy, procedure, guideline, order) for all personnel to see until Month day, year and then file both in the Directive Binder (or whatever action is appropriate).

REFERENCES: GBWFRD Fire Services XX SOG 1.1.17 GBWFRD Policy XX.X OHS Legislation XX OHS Act Chapter 2.0 Hazard Risk Assessment

___________________________ Fire Chief

___________________________ Deputy Chief

___________________________ Training Captain

___________________________ Volunteer District Chief

___________________________ Volunteer District Chief

96 | Page

Appendix II Level of Service TOWN OF GBW LEVEL OF SERVICE POLICY (sample)

POLICY STATEMENT: To manage identified hazards and risks within the borders of the Town of GBW and provide direction on the specific Level of Services to reduce and mitigate these risks in order to increase the safety of the residents of the service district .

Notwithstanding anything contained within these Level of Service guidelines, due to the nature of the Volunteer Fire Protection Service, the Town of GBW cannot guarantee a response or a specific response time for any incident or location. The Town of GBW Fire Department may not be able to respond or may be delayed in its response. As a result, Town residents may have to wait for other Fire Departments to arrive at any particular location.

PURPOSE & SCOPE: This policy applies to the Town of GBW Fire-Rescue Department and all fire department members for the delivery of fire service within the municipal boundaries of the Town of GBW. The scope is to create a foundation of core services from which to direct fire and emergency services strategic planning, including training requirements, staffing levels, apparatus requirements, response protocols, fire department operations and the overall provision of service.

IDENTIFICATION OF SERVICE DELIVERY: Response Levels & Minimum Staffing a)

Awareness level: Firefighters will recognize risks and hazards, secure the area, and call for trained assistance.

b)

Operations level: Firefighters will take defensive action to contain and control the incident and seek assistance from outside agencies equipped to mitigate the incident. Operations depend on adequate staffing levels to provide an effective response force.

c)

Technician level: Firefighters will initiate offensive action to bring the incident under control and to an end. This depends on adequate staffing levels to provide an effective response force.

d)

Minimum staff refers to the minimum staff number required to initiate a response without mutual or automatic aid.

97 | Page

Appendix III Service Matrix and Alberta Fire Services Core Competency Framework Tool

GRAND BAY-WESTFIELD LEVEL OF SERVICE MATRIX ORGANIZATIONAL SERVICES

Foundational pieces are necessary to have a Fire Department. OHS & Human Resources fall into this category.

Service Orientation

Service Type Core

OHS: 20+ Members

Core

Fire Prevention

Core

Team Lead

Core

General Description of service Initial onboarding; Human Resources; Occupational Health and Safety; Equipping new staff with the tools, equipment, apps, and PPE Minimum New Brunswick OHS requirements for worksites with 20 or more workers. A formal OHS program is required.

Includes all fire prevention services managed in the Town of GBW; Public Education, Fire Inspections, and Fire Investigations.

Comments Compulsory Service

Compulsory Service Compulsory Service Optional services may be outsourced to the OFM Compulsory Service

Development of senior staff and Officers; Leadership; Safety; Critical thinking and decisionmaking skills; Administration & record keeping; Operational standard NFPA 1021 Municipal Core Town of GBW is considered Compulsory suburban for response within its Service Demand Zone(s) borders CORE SERVICES The most common and important “Core” Fire Services offered throughout the Fire Service.

General Description Comments Service Service Level of service General Operations Required basic skills and Compulsory training post orientation; Service Firefighting involves personal and team safety; all basic JPRs from NFPA 1001-L1 Apparatus & Operations Driver training to meet Traffic Compulsory Safety Act; operations of vehicle Service Vehicle systems excluding pump Operations operations

98 | Page

Fire Suppression (Exterior Operations) Fire Suppression (Interior Operations)

Technician

Wildland Grassland Firefighting

Training based on NFPA 1001L1 & L2; Optional certification achieved through the Province Training based on NFPA 1001 F1 & F2; Optional certification achieved through the Province

Compulsory Service Min staff 3 Optional Service Min staff 4

Technician

Training based on NFPA 1051 JPRs

Compulsory Service Min Staff 3

Dangerous Goods and HazMat

Awareness

Compulsory Service Min Staff 3

Vehicle Firefighting

Technician

Ability to identify a Hazmat event and potential consequences; ability to ensure public safety and secure hazardous zone(s) and perform evacuation if necessary; NFPA 470 Identifying and training in special techniques and practices related explicitly to Vehicle fires

Traffic Control

Technician

Operations

Compulsory Service Min Staff 3

Basic competencies in working Compulsory on roadways; providing a safe Service working area for all responders; Min staff 3 traffic control and flow; NFPA 1091 Competencies related to the Compulsory Pumping Operations operation and use of fire pumps Service Operations on apparatus as identified in NFPA 1002 Response to occupancies that Compulsory Response to Operations include monitored alarms Service Min Alarms systems, CO alarms, suspicious staff 3 odours; Basic knowledge of fire alarm panel functions EXTENDED SERVICES Unique services requiring additional expertise, training, and resources.

Service Service General Description Comments Level of service Vehicle Awareness Vehicle Extrication including Optional safe removal of trapped or Service Extrication pinned occupants of motor Min staff 4 vehicle collisions using hand, air, electric, edraulic or hydraulic operated extrication tools Medical Co- Operations Basic first aid; CPR; AED; assist Optional ANB/EMS with support at a Service Response

99 | Page

medical emergency that involves intervention for immediately life-threatening medical conditions;

Min Staff 2, Max Staff 4

Organizational Services Explanations: 1. Orientation Initial onboarding of members, including orientation of the organization's core competencies, such as Human Resources, Finances and Occupational Health and Safety.

Equipping each recruit with the tools, equipment, and personal protective equipment to perform their job.

2. OHS 20 or More Members Minimum New Brunswick OHS requirements must be met for worksites with 20 or more workers. In addition, both workers and employers have legal obligations to meet or exceed the Occupational Health and Safety Act, Regulation and Code. A formal OHS Program is required.

3. Fire Prevention Services Includes the provision of all fire prevention services as managed in the GBWFRD; o Public Education o Fire Investigation o Fire Inspections o Pre-Fire Planning of Critical infrastructure and targeted occupancies Educate your community in fire prevention, safety, and emergency preparedness. This is an essential part of every fire service and community safety plan. Consideration should be given to establishing long-range strategic planning in Fire Prevention services.

4. Team Lead Officer development and training. Providing the necessary skills, knowledge, understanding, and leadership required of a fire Officer so they can safely lead their team through assigned tasks to reach the best outcome.

100 | Page

5. Municipal Demand Zones

Guided by NFPA 1720, this gives standards to staffing levels, response times and targets based on the demographics of your municipality. The Town of GBW is a suburban demand zone.

Core Services Explanations: 6. General Firefighting Firefighter initial orientation, core competency training and skill maintenance. These are the required basic skills and training involving personnel and team safety; all basic Job Performance Requirements (JPRs) from NFPA 1001-L1 are applicable based on the service level.

7. Apparatus & Vehicle Operations Driver training to meet Traffic Safety Act; safe operations of vehicle systems (excluding pump operations), including Pre-trip inspections and documentation, apparatus backing and manoeuvring.

8. Structural Firefighting: Interior Operations Interior structural firefighting will only be performed where sufficient personnel, training, equipment, and water supply are on scene to safely carry out such duties as ventilation, search and rescue, fire attack, and salvage and overhaul. The Fire Department shall operate at the Response Level that the Firefighters are trained for.

9. Structural Firefighting: Exterior Operations 101 | Page

Fire Departments shall operate at a Technician Level at non-structural fires, including but not limited to vehicle fires, outbuildings, and other non-structural fires unless there are special circumstances which exceed the Fire Department's training, in which case, the Fire Department shall operate at the Response Level that the Firefighters are trained for.

10. Wildland-Grassland Firefighting Grassland fire suppression requires specialized apparatus, water, foam, and other equipment. The Fire Departments shall operate at a Technician Level.

11. Vehicle Firefighting Fire Departments operate at a Technician Level and shall be able to attack a vehicle fire with an attack line and hand tools so that hazards, leaking flammable liquids, and flash fires are managed and controlled, and the fire is extinguished.

12. Dangerous Goods and HazMat Firefighters will recognize the presence of hazardous materials, protect themselves and the residents of Acme, secure the scene and call for assistance from higher-trained personnel. Fire Departments shall operate at an Awareness Level and have the knowledge and ability to contain and clean basic dangerous goods spills such as at MVCs. 13. Motor Vehicle Response Only if the appropriate equipment and recommended number of personnel are available. Includes any or all of the following: o Scene safety and stabilization o Vehicle stabilization o Extrication of patients o Patient care of persons involved o Landing Stars Air Ambulance o Fire Suppression Fire Departments shall provide motor vehicle response at a Technician Level if the appropriate equipment and recommended number of personnel are available. Medical First Response (MFR) on a Motor Vehicle Response scene shall be performed at an Operations Level.

102 | Page

14. Traffic Control Traffic control shall be undertaken at a Technician Level in response to motor vehicle collisions with the sole purpose of traffic control. Firefighters must wear high-visibility clothing with appropriate traffic control devices in place.

15. Pumping Operations Trained firefighters shall provide pump operations at a Technician Level to perform pumping operations to provide water supply, fire attack, and fire foam stream from a static or pressurized source. They will be able to draft and assemble hoses, nozzles, valves, and appliances to apply rated flow in live fire incidents.

Extended Services Explanations: 16. Medical Co-Response / Medical First Response (MFR) When Dispatch identifies the need for a Fire Department response, the Fire Department may provide medical first response to outside medical agencies (ANB). In a medical emergency, the Fire Departments shall operate at an Operations Level no greater than basic life support at the Standard First Aid or Emergency Medical Responder level. Fire Departments shall not transport patients.

17. Vehicle Extrication Vehicle Extrication includes safely removing trapped or pinned occupants of motor vehicle collisions using hand, air, electric, edraulic or hydraulic-operated extrication tools. Fire Departments shall provide motor vehicle collision (MVC) rescue at a Technician Level if appropriately trained.

REFERENCES The following were utilized to develop and support this policy: Alberta Fire Services Core Competency Framework; abfirechiefs.ca NATIONAL FIRE PROTECTION ASSOCIATION: o NFPA 1001, NFPA 1002, NFPA 1006, NFPA 470, NFPA 1021, NFPA 1051, NFPA 1720 New Brunswick Occupational Health and Safety Act: WorkSafe NB

103 | Page

Appendix IV Recruitment and Retention Initiatives Retention Initiatives: ● Continue to create and expand upon an annual event (e.g., firefighter’s recognition ceremony) that not only allows the different stations to come together but also promotes the contribution the Fire Service makes to the region and provides annual service recognition to members who have served their communities. Leaders could use this event to recognize years of service, retirements, significant events, or other noteworthy acts by members. This event could also have the added benefit of acting as a fundraiser for the Regional Fire Service. ● Fire station dinner before practice night, set at regular intervals to create tradition.

Perhaps monthly or bi-monthly. ● Continue to track hours for firefighters. Firefighters not receiving remuneration have potential tax credit options for volunteer firefighters. Firefighters may be able to claim a tax credit of $450 (15% of $3,000) if you meet the certain requirements: o You are a volunteer firefighter. o With the year you performed at least 200 hours of eligible service. ● A point system could be developed rewarding members who consistently show up for training and incidents. These points could be used for the members to acquire station wear, personal gear, or other fire department goods. ● Public recognition, peer recognition and recognition using social media. ● Continue to provide rewards for years of service such as uniforms, equipment, and other items. ● Continue to train engaged junior firefighters, senior firefighters, and officers for positions beyond their current rank where deemed appropriate. These types of training opportunities for these strong members often leads to further engagement and leadership from them. ● Consider recruitment for other positions that support the fire department or public safety including medical response, public educator for fire and safety, records management, equipment management, etc.

Recruitment Initiatives Although Grand Bay-Westfield really doesn’t face recruitment challenges like so many other departments here are a few ideas to be considered should the need arise in the future. ● Provide a small incentive for members to bring a friend to a recruitment night.

104 | Page

● Developing a video that interviews a few firefighters about their experiences as a volunteer firefighter and share it on social media. Add some video of responses in as well. ● Connect with high schools and consider a “Sponsor a Firefighter” program to sponsor a new graduate to get their fire training at a recognized college. ● Start a junior firefighter program for the region. Again, working with the high school and school board, attempting to get course credit for students being involved with the Fire Service as a trade opportunity.

Other valuable resources for identifying recruitment and retention strategies include the: Two great volunteer recruitment strategy resources include the: 1.

Canadian Association of Fire Chiefs (CAFC) in partnership with the Alberta Fire Chiefs Association (AFCA) Firefighter Recruitment & Retention Toolkit: https://cafc.ca/page/answerthecall

2.

US Federal Emergency Management Agency (FEMA) Retention and Recruitment for the Volunteer Emergency Services: https://www.usfa.fema.gov/downloads/pdf/publications/fa-310.pdf

105 | Page

Appendix V Recommendations Governance and Administration 1. TSI recommends that a complete review of By-law No. 118 be conducted to reflect a Level of Service Policy and that the Level of Service Policy be contained in an appendix to the By-law.

2. TSI recommends that the role of Fire Prevention Officer be defined in the revision of Bylaw No. 118. A suggestion could be: The role of Fire Prevention Officer will include the duties and responsibilities of creating and maintaining the Fire Prevention Program, which includes inspections and enforcement of the Fire Prevention Act as conferred by the Fire Marshal. For the purposes of this by-law the Fire Chief will act as the Fire Prevention Officer.

3. TSI recommends to further include the following definitions within the definition section of the by-law: 5(3). Gas Fire Pits (Campfire Effect Units) which are designed to operate with propane or natural gas, are intended for outdoor use only, not for food preparation, and that are ULC and CSA approved are permitted provided they are supervised at all times and operated in accordance with manufacturer's instructions in a safe manner and location away from combustibles.

5(4).

In this section: a) “outdoor wood burning appliance” or “outdoor fireplace” means a manufactured non-combustible enclosed container designed to hold a small fire for decorative purposes and the size of which is not larger than one (1) meter in any direction, and may include, but not limited to, chimneys. b) “personal outdoor fireplace” means a hand-made, non-combustible, enclosed container which may include some or all of the components of an outdoor wood burning appliance and has been approved by the Fire Chief or designate.

4. TSI recommends that an annual review of the fire by-law be conducted by the Fire Chief to ensure it reflects the risks and needs of the community and that the fire service remains within the level of service identified by Council.

5. TSI recommends formalizing the relationship between the Grand Bay-Westfield Volunteer Fire Rescue Department and the Saint John Fire Rescue Department through a Mutual Aid Agreement, either with Saint John exclusively, or with Saint John and other Municipalities in the area surrounding Saint John.

6. TSI recommends that the Chief adopts one form of Operational Directive in order to communicate any command decision, change or addition to any fire department documents, either interim, short or long term. All directives should be kept in an accessible place for personnel to reference. Additionally, that a system be implemented 106 | Page

to review the directives annually to either delete them or move them into a more permanent document.

7. TSI recommends a review of the Standard Operating Guidelines to ensure they reflect the Level of Service Policy, set clear, concise direction based on the Vision, Mission and Values and meet the above standardized framework.

8. TSI recommends moving the two documents titled Firefighter Crew Assignments, and Scene Organization into procedures contained within an SOGs in the Operation section 600.

9. TSI recommends separating this section out of the OHS section and creating a Driver Operator section of the SOG’s, conversely the Driver Operator section could be contained in an Operations section.

10. It is recommended that in addition to the other statutes written in this section that it should include the federal Traffic Safety Act. 11. TSI recommends that regular annual reviews of all Fire Department documents be completed to reflect any changes in the fire service or guiding documentation i.e., NFPA changes and updates. Additionally, the review of the documents will facilitate an opportunity to move Directives that may have been issued throughout the year into an actual Guideline, Procedure, or Policy, or to remove them completely if no longer relevant.

12. TSI recommends creating a Policy manual for the SOG’s contained in SOG 100.0 - 204.1, specific to the management of Personnel, discipline, job descriptions, honorariums and code of conduct. Conversely the SOG’s contained in SOG 100.0 - 204.1 could be added into the Corporate Policy Manual in a section called Firefighter Policies.

13. TSI recommends supporting the firefighter being disciplined, in being offered an opportunity to provide written comment on the documentation contained in the file.

14. TSI recommends allegations of any form of misconduct should automatically be documented and considered for investigation.

15. TSI recommends that given the severity of the misconduct any and all steps contained in SOG 100.5 can be skipped, and dismissal from the Department may result.

16. TSI recommends the creation of a Policy Manual to manage the organizational structure and personnel management.

17. TSI recommends that Guidelines are reframed to include Procedures, in an identified Procedures Section within the framework of those Guidelines.

18. TSI recommends examining the many SOG’s through the lens of what is absolutely necessary to give clarity and direction on, and what is something that can be managed with discretion, at scene, on the fire ground.

107 | Page

19. TSI recommends continuing to utilize the training available to them to train their personnel in the use of the record management software. The training should be tailored to meet the learning needs of the officers and firefighters alike.

Fire Rescue Operations 1. TSI recommends that the Town of Grand Bay-Westfield develop a new Level of Service document that will serve as the foundation of fire and rescue services provided by the GBWFRD to the residents of Grand Bay-Westfield and the adjacent Local Service Districts.

2. TSI recommends that internal guidelines, procedures or protocols be created for minimum, or maximum staffing requirements, for response to all services requiring a response, specifically those services that are high priority or time sensitive, and that these protocols are shared as part of the training program with all staff.

3. TSI recommends a review of Grand Bay-Westfields geographic and municipal make-up to determine the most appropriate designation for municipal demand zone (Urban, Suburban, Rural, Remote) in order to determine which NFPA Standard (NFPA 1710 or NFPA 1720) best applies to the community and response area.

4. TSI recommends that GBWFRD consider, as a medium to long range initiative, the creation of, or a review of all dispatch and response protocols to ensure they are aligned with the LOS policy.

5. TSI recommends that GBWFRD develop, as a medium or long term initiative, a standard of cover for all critical response types.

6. TSI recommends in the medium term, the consideration of relay pumping as an alternative to water shuttles to increase efficiency and safety at significant fire events.

7. TSI recommends as part of medium to long term planning, that the evaluation and replacement strategies of Rescue 5 and CAR 3 include that consideration be given to the use of a heavier chassis suitable for use with a skid unit designed for rapid attack of grass, wildland and WUI fire events.

8. TSI recommends that an increased inventory of high volume supply hose be considered to accommodate the possibility of relay pumping, as an alternative to tanker shuttles for uninterrupted water supply to major fire events.

108 | Page

9. TSI recommends the review of, or establishment of a mutual aid agreement with the City of Saint John to supply or gain access to aerial ladder or aerial tower apparatus should an event require elevated fire streams, emergency access to inaccessible rooftops or rescue of persons from multi-story occupancies.

10. TSI recommends exploring the possibility of improving collaboration with agencies capable of providing water rescue services with the goal of establishing a co-response initiative that would be effective and meet GBWFRD expectations and operational goals in providing water rescue services.

11. TSI recommends that locations of both fire stations remain unchanged in the long term.

The only exception would be if there was a future desire by Council to relocate a fire station on available land with, or with the potential of, a permanent year round unlimited water supply.

12. TSI recommends that medium term planning consist of a feasibility study to renovate Station 1 in order to provide more usable apparatus floor space.

13. TSI recommends that long term plans for Station 2 include taking over the entire building to allow increased space for apparatus and offices.

14. TSI recommends medium to long term planning for the addition of more suitable shower facilities at both fire stations.

15. TSI recommends the development of mandatory inspection, regular testing and maintenance procedures required for the primary water supply sites (in GBW and LSDs), that involve or require any form of mechanical assistance (pumps) for use.

16. TSI recommends that as part of medium range strategic planning (3-5-yrs and beyond) GBWFRD Administration, CAO and Council review the 2015 Fire Fighting Water Supply Plan - Dillon Consulting.pdf, to aid in establishing priorities to improve access to new or additional water sources, in order to increase the quantity of water available in support of firefighting operations.

17. TSI recommends that the GBWFRD consider long term initiatives for building greater capacity in fire prevention and education in hopes of establishing a local fire prevention and public education program as a commitment to enhance protection of the community, the public and its most vulnerable residents.

109 | Page

18. TSI recommends that the GBWFRD build capacity in the field of fire investigation through the empowerment of interested Department Personnel.

19. TSI recommends the development of Pre-Fire Planning of target hazards, critical infrastructure and special occupancies as part of the Fire Prevention Portfolio, and that the plans be designed in a way that allows access to information for responding crews.

Human Resources 1. TSI recommends each of the Lieutenants have an assigned group of firefighters (Platoon) that they are responsible for, in order to provide reporting clarity for the members.

2. TSI recommends that Council hosts an event where they could meet the firefighters and possibly participate in simple daily activities the firefighters undertake.

3. TSI recommends further training on the basics of Exterior Attack in accordance with NFPA 1001 (2019) FF 1; 4.3.1, 4.3.8. 4.3.10, 4.3.13, 4.3.14, 4.3.15 and include the Job Performance Requirements (JPR’s) listed in the Standard to ensure confidence in all members ability to complete Exterior Attacks.

4. TSI recommends that Live fire training is refreshed annually and should be offered to all members of GBWFRS who are minimally NFPA 1001 level 1 certified, and should follow NFPA 1403.

5. TSI recommends that the Training Officer position achieve additional certification in the following NFPA standards: a. NFPA 1500 (Firefighter Department Occupational Health and Safety), b. NFPA 1006 (Standard for Technical Rescue Personnel Professional Qualifications), c. NFPA 470 (Hazardous Materials Standards for Responders).

6. TSI recommends that the Training Officer position help deliver the weekly and any additional training provided to the Volunteer firefighters.

7. TSI recommends that the Job Description be updated to reflect the additional suggested duties and qualifications.

8. TSI recommends that a year long training plan be developed that includes pre planning and familiarization of larger buildings.

110 | Page

9. TSI recommends that real time scenario based training be implemented for some of the training events.

10. TSI recommends that medical training take place at least once a month as it is the leading call GBWFRD responds to, this would also be a great opportunity to integrate real time scenarios.

11. TSI recommends that the creation of a performance management system which includes an annual performance review be created and implemented.

12. TSI recommends ensuring that all job descriptions are the same in all documents.

13. TSI recommends creating a job description for the volunteer district chiefs identified in the Organizational chart but missing in the SOG’s job description.

14. TSI recommends developing Officer training programs, and ensuring all officers receive ongoing training.

15. TSI recommends the creation of a section in the SOPs specific to OHS requirements. The OHS section should include; a. a Hazard Assessment created for each position on the FD i.e. Chief, Deputy Chief, District Chiefs, Captains, Lieutenants and Firefighters, specific to all hazards of firefighting including training and work on the fire floor, that ensures the hazard is managed by the hierarchy of control. b. a Respiratory Code of Practice as outlined in the OHS Act using CSA Z94.4-11 to ensure proper adherence to regulations. c. Frequency for FIT testing of all firefighters wearing SCBA in accordance with CSA Z94.4-11 Standard.

16. TSI recommends that the SOG’s include standard checks on all equipment in the fire service and documentation on the standard check frequency, maintenance and repair should be created.

17. TSI recommends having the PPE of the firefighters cleaned professionally after exposure to fire and the residue of fire as well as any pathogen exposures (i.e. blood,bodily fluids) or at least annually.

111 | Page

18. It is also recommended to keep complete records of all cleaning and repair done to the PPE for the life of the PPE. 19. TSI recommends amending SOG 405.1, 3. B. to say that “No alterations shall be made to the PPE, unless professionally done.”

20. TSI recommends that GBWFRD create a procedure that includes regular decontaminating of all fire gear.

21. TSI recommends that as a first step towards a clean cab policy Grand Bay-Westfield Fire Rescue Department adopt a clean cab initiative which involves cleaning the equipment used at fires and ensuring that the interior of cabs are washed and decontaminated prior to the next call.

Budget and Financial Management 1. TSI recommends that the Town should create cost centers for each fire hall. The cost center budget should be created with individual accounts and backup for each budget amount.

2. TSI recommends that the Town should develop an operational equipment replacement plan. The equipment inventory shows there are 652 individual pieces of equipment that the fire hall uses. An operating fire reserve could be set up to fund the future replacement of major equipment such as turnout gear and SCBA equipment.

3. TSI recommends that the Town should create a capital fire equipment replacement reserve. A capital contribution to reserve should be budgeted in the amount of $193,333.

112 | Page

Appendix VI Level of Service Options Legend: A = Awareness O = Operational T = Technical ✅ = in-House Service

Grand Bay-Westfield Fire Rescue Services SERVICE OR SYSTEM 1 APPARATUS AND VEHICLE OPERATIONS 2 EXTERIOR OPERATIONS 3 GENERAL FIREFIGHTING 4 TEAM LEAD 5 OHS (20 or More Workers)

BRIEF DESCRIPTION Safely and properly operating various Fire Department apparatus Competencies related to structure fires with a defensive/exterior operations mode.

The basics of what every firefighter needs to know and train on. From safety to communications to ropes and knots, it’s all covered here.

Important items for the development of officers and other team leaders in the organization Minimum New Brunswick OHS requirements for worksites with 20 or more workers.

6 FIRE PREVENTION AND INVESTIGATION

Includes all Fire Prevention services managed in the town of GBW; Public Education, fire Inspections, and Fire Inventigations.

7 MUNICIPAL DEMAND ZONE(S)

Town of GBW is considered suburban for response within its borders

8 ORIENTATION

O pt (B ion ro 1 nz e) O pt io (S n 2 ilv er ) O pt io (G n 3 ol d)

LEVEL OF SERVICE (LOS) OPTIONS

O

O

O

T

T

T

O

O

O

✅

✅

✅ ✅

✅

✅

✅

✅

✅

Initial on boarding to the organization such as Human Resources, Finances and Occupational Health and Safety.

Equipping the person with the tools, equipment, apps and PPE to perform their job.

✅

✅

✅

9 GENERAL FIREFIGHTING

Required basic skills and training post orientation; involves personal and team safety; all basic JPR's from NFPA 1001

O

O

O

10 APPARATUS AND VEHICLE OPERATIONS

Driver training to meet Traffic Safety Act; operations of vehicle systems excluding pump operations

T

T

T

11 FIRE SUPPRESSION (EXTERIOR OPERATIONS)

Training based on NFPA 1001 - L1 & L2; Optional certification achieved through the Province

T

T

T

✅

✅

✅

A

A

A

✅

✅

✅

O

O

O

✅

✅

✅

O

O

O

T

T

T

12 PUBLIC EDUCATION 13 DANGEROUS GOODS & HAZMAT AWARENESS 14 FIRE PREVENTION AND INVESTIGATION 15 INTERIOR OPERATIONS (STRUCTURAL) 16 MUNICIPAL DEMAND ZONE(S) 17 PUMPING OPERATIONS 18 TRAFFIC CONTROL

Educating your community in fire prevention, safety and emergency preparedness Competencies related to the general approach to hazardous and DG material Related to the area of basics in fire investigation Competencies related to structure fires with an offensive/interior operations mode Guided by NFPA 1720, this gives standards to response times and targets based on the demographics of your municipality.

Skills and knowledge related to pumping operations from firefighting apparatus.

Basics of safety and tactics in response to MVC’s with sole purpose of traffic control

19 VEHICLE FIREFIGHTING

Related to fire attack and safety in vehicle fires

T

T

T

20 WILD LAND - GRASSLAND FIREFIGHTING

Strategies and safety in wildland / grassland firefighting

T

T

T

T

T

T

O

O

O

O

O

T

21 TRAFFIC CONTROL 22 RESPONSE TO ALARMS 23 VEHICLE EXTRICATION 24 AERIAL OPERATIONS

113 | Page

Basic competencies in working on roadways; providing a safe working area for all responders; traffic control and flow;NFPA1091 Response to occupancies that include monitored alarm systems, CO alarms and suspicious odours.

Competencies related to the skills needed to complete safe and proper vehicle extrication evolutions.

Competencies related to the operation on use of aerial apparatus or ladder trucks

Grandbay-Westfield Fire Rescue Services

Legend: A = Awareness O = Operational T = Technical ✅ = in-House Service

25

SERVICE OR SYSTEM

BRIEF DESCRIPTION

AIRCRAFT RESCUE & FIREFIGHTING OPERATIONS

Dealing with crashes, emergency landings, and other aircraft emergencies Firefighting in structures three or more stories tall with potential for high occupancy.

Techniques and approach to fires involving industrial compounds and at industrial sites.

Firefighting marine vessel fire from standard apparatus or from a fire response capable marine vessel Basic patient care prior to EMS arrival and working as a team with EMS when they do arrive Foundational skills and understanding of scenes requiring rescue and management of large and small animals.

26 LOWRISE BUILDING FIREFIGHTING 27 INDUSTRIAL FIREFIGHTING 28 MARINE FIREFIGHTING 29 MEDICAL CO-RESPONSE 30

TECHNICAL RESCUE: ANIMAL TECHNICAL RESCUE

31 TECHNICAL RESCUE: CONFINED SPACE

The rescue and recovery of victims trapped in a confined space or in a place only accessible through confined spaces

32 TECHNICAL RESCUE: DIVE RESCUE

Rescue involving victims below the water surface.

33 TECHNICAL RESCUE: FLOODWATER RESCUE

Rescue of individuals trapped in structures or on land masses due to floodwater

34 TECHNICAL RESCUE: ICE RESCUE

Effecting rescue in frozen or partially frozen bodies of water

Techniques for rescue and extrication operations on large vehicle and equipment Response and extrication of victims trapped in various types 36 TECHNICAL RESCUE: MACHINERY RESCUE of machinery Rescue of victims using various rope, haul, and belay 37 TECHNICAL RESCUE: ROPE RESCUE systems Response and rescue of individuals trapped in spaces 38 TECHNICAL RESCUE: STRUCTURAL COLLAPSE involving structural collapse 35 TECHNICAL RESCUE: LARGE VEHICLE RESCUE

39 TECHNICAL RESCUE: SURFACE WATER

Effecting rescue on lakes and other static bodies of water

40 TECHNICAL RESCUE: SWIFT WATER

Effecting rescue on moving water like rivers

41 TECHNICAL RESCUE: TOWER RESCUE 42 TECHNICAL RESCUE: TRENCH RESCUE TECHNICAL RESCUE: WILDERNESS SEARCH & RESCUE WILD-LAND URBAN INTERFACE (WUI) 44 FIREFIGHTING 43

114 | Page

Rescue of individuals trapped on commercial towers such as communication towers Extrication of victims trapped in trenches with potential for collapse Search, rescue, and recovery of individuals in wilderness environments Wildland/ Urban Interface firefighting is a potential reality in many Alberta communities

O pt (B ion ro 1 nz e) O pt io (S n 2 ilv er ) O pt io (G n 3 ol d)

LEVEL OF SERVICE (LOS) OPTIONS

O

O

O

PREPARED BY:

290, 2899 Broadmoor Blvd | Sherwood Park, AB | T8H 2H3 | 587-583-4308 www.transitionalsolutions.ca