Township of Wilmot Fire Master Plan

Township of Wilmot Fire Master Plan Final Report December 2012

Submi ed by:

Township of Wilmot Fire Master Plan Final Report December 2012

Our Project: 12-6148

Prepared By:

Dillon Consulting Limited

Fire Master Plan Township of Wilmot December 2012

TABLE OF CONTENTS TABLE OF CONTENTS ...................................................................................................................... I LIST OF TABLES.............................................................................................................................. III LIST OF FIGURES............................................................................................................................ III 1.0

INTRODUCTION ..................................................................................................................... 1 1.1 Community Background ................................................................................................. 1 1.2 Department Background ................................................................................................. 2

2.0

LEGISLATION ......................................................................................................................... 3 2.1 Legislation Fire Prevention and Protection Act, 1997...................................................... 3 2.2 Office of the Fire Marshal, Ontario ................................................................................. 4 2.3 Occupational Health and Safety Act ............................................................................... 5

3.0

COMMUNITY RISK PROFILE............................................................................................... 6 3.1 Summary of Community Risk Profile ............................................................................. 7

4.0

ADMINISTRATION DIVISION .............................................................................................. 9 4.1 Department Services ....................................................................................................... 9 4.2 Department Organization.............................................................................................. 10 4.3 Department Management Team .................................................................................... 11 4.3.1 Fire Chief ........................................................................................................ 11 4.3.2 District Chiefs .................................................................................................. 11 4.3.3 Deputy Fire Chief ............................................................................................ 12 4.3.4 Administrative Support .................................................................................... 13 4.4 Administrative Workspace............................................................................................ 13 4.5 Annual Report .............................................................................................................. 13 4.6 By-laws & Agreements ................................................................................................ 14 4.6.1 By-laws ........................................................................................................... 14 4.6.2 Mutual Aid Agreements ................................................................................... 14 4.6.3 Automatic Aid Agreements (Fire Protection Agreements) ................................ 14 4.6.4 Tiered Response Agreement............................................................................. 17 4.6.5 Dispatch Services Agreement ........................................................................... 17 4.7 Mission Statement ........................................................................................................ 18 4.8 Departmental Policies and Standard Operating Guidelines ............................................ 18 4.9 Departmental Records Management ............................................................................. 19 4.10 Community Emergency Management (CEM) ............................................................... 20 4.11 Administration Division Summary and Recommendations ............................................ 21

5.0

FIRE PREVENTION & PUBLIC EDUCATION................................................................... 23 5.1 Comprehensive Fire Safety Effectiveness Model .......................................................... 23 5.2 Staffing ........................................................................................................................ 23 5.2.1 Fire Prevention Inspections .............................................................................. 24 5.2.2 Fire Investigations............................................................................................ 26 5.2.3 Fire Safety Plans .............................................................................................. 26 5.2.4 Public Education Programs .............................................................................. 28 5.2.5 Smoke Alarm Program..................................................................................... 29 5.3 Fees for Service ............................................................................................................ 30 5.4 Workspace ................................................................................................................... 30 5.5 Fire Prevention/Public Education Division Summary and Recommendations ................ 30

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Fire Master Plan Township of Wilmot December 2012

6.0

FIRE SUPPRESSION.............................................................................................................. 32 6.1 Emergency Response.................................................................................................... 32 6.2 Fire Suppression Performance Targets .......................................................................... 32 6.3 Fire Suppression Operations ......................................................................................... 34 6.3.1 Initial Response Areas ..................................................................................... 35 6.3.2 Depth of Response Areas ................................................................................. 36 6.3.3 Automatic Aid Agreements (Fire Protection Agreements) ................................ 37 6.3.4 Call Volume .................................................................................................... 38 6.3.5 Incident Types ................................................................................................. 39 6.3.6 Incident Types by Station ................................................................................. 41 6.3.7 Total Response Times ...................................................................................... 43 6.3.8 Response Times by Station .............................................................................. 45 6.3.9 Dispatch Times ................................................................................................ 45 6.3.10 Turnout Times ................................................................................................. 47 6.3.11 Turnout Times by Station ................................................................................. 48 6.3.12 Travel Times.................................................................................................... 49 6.4 Existing Fire Suppression Services ............................................................................... 49 6.4.1 Current Staffing ............................................................................................... 49 6.5 Medical Calls ............................................................................................................... 51 6.6 Municipal Water System .............................................................................................. 52 6.6.1 Municipal Water System .................................................................................. 52 6.6.2 Tanker Shuttle Accreditation ............................................................................ 53 6.6.3 Emergency Response 窶天olunteer Firefighters .................................................. 53 6.7 Fire Suppression Division Summary and Recommendations ......................................... 53

7.0

TRAINING DIVISION ............................................................................................................ 55 7.1 Staffing and Training Sessions...................................................................................... 55 7.2 Training Programs ........................................................................................................ 56 7.3 Specialty Training Programs ......................................................................................... 56 7.3.1 Live Fire Training ............................................................................................ 57 7.4 Succession Planning ..................................................................................................... 57 7.4.1 Promotional/Recruitment Process..................................................................... 57 7.4.2 Company Officer Training ............................................................................... 58 7.4.3 Training Remuneration .................................................................................... 58 7.5 Facilities & Workspace ................................................................................................ 58 7.6 Training Division Summary and Recommendations ...................................................... 59

8.0

FIRE STATIONS, APPARATUS & EQUIPMENT ............................................................... 60 8.1 Fire Stations ................................................................................................................. 60 8.2 Diesel Emissions .......................................................................................................... 61 8.3 Apparatus and Equipment ............................................................................................. 62 8.3.1 Staffing and Responsibilities ............................................................................ 62 8.3.2 Apparatus & Fleet ............................................................................................ 62 8.4 Maintenance ................................................................................................................. 63 8.4.1 Apparatus Maintenance .................................................................................... 63 8.5 Equipment .................................................................................................................... 64 8.6 Fleet Replacement Plan ................................................................................................ 65 8.7 Fire Station, Apparatus, & Equipment Summary and Recommendations ....................... 66

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Fire Master Plan Township of Wilmot December 2012

9.0

COMMUNICATIONS & TECHNOLOGY............................................................................ 67 9.1 Fire Dispatch ................................................................................................................ 67 9.2 Internal Department Communications ........................................................................... 67 9.3 Communications and Technology Summary and Recommendations ............................. 68

10.0

STUDY CONSULTATION ..................................................................................................... 69 10.1 Steering Committee ...................................................................................................... 69 10.2 Project Meetings........................................................................................................... 69 10.3 Stakeholder Consultation .............................................................................................. 69 10.3.1 Interviews with Steering Committee Members ................................................. 69 10.3.2 Interview with District Chiefs .......................................................................... 70 10.3.3 Volunteer Firefighter Roundtable Sessions ....................................................... 70 10.3.4 Project Update for Volunteer Firefighters ......................................................... 70

11.0

IMPLEMENTATION PLAN .................................................................................................. 71 LIST OF TABLES

Table 1: Fire Prevention and Public Education Activities ....................................................................... 24 Table 2: Township of Wilmot Fire Inspection Performance Measures ................................................... 25 Table 3: Fire Prevention and Public Education Priority Setting Worksheet ............................................ 27 Table 4: Children Safety Village Attendance (2009-2012) .................................................................... 28 Table 5: Summary of Incident Types .................................................................................................... 39 Table 6: NFPA 1720 Table 4.3.2 Staffing and Response Time ............................................................... 43 Table 7: Historic 90th Percentile Response Times by Station (2007-2011) ............................................. 45 Table 8: Historic 90th Percentile Turnout Times by Station (2007-2011) ............................................... 48 Table 9: Current Stations, Apparatus & Minimum Staffing ................................................................... 61 Table 10: Apparatus and Model Year .................................................................................................... 62 Table 11: Fleet Replacement Plan ......................................................................................................... 65 Table 12: Implementation Plan .............................................................................................................. 71

LIST OF FIGURES Figure 1: Department Organizational Chart............................................................................................ 10 Figure 2: Automatic Aid Coverage Areas .............................................................................................. 16 Figure 3: Current Initial Response Coverage Areas ............................................................................... 35 Figure 4: Current Depth of Response Coverage Areas........................................................................... 36 Figure 5: Historical Annual Call Volume (2007 - 2011) ........................................................................ 38 Figure 6: Historic Annual Call Volume by Station (2007-2011) ............................................................. 38 Figure 7: Historical Call Volume by Type (2007-2011) ........................................................................ 39 Figure 8: Percentage of Calls by Type ................................................................................................... 40

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Fire Master Plan Township of Wilmot December 2012

Figure 9: Calls by Type - Baden Station................................................................................................. 41 Figure 10: Calls by Type, New Dundee Station...................................................................................... 41 Figure 11: Calls by Type, New Hamburg Station ................................................................................... 42 Figure 12: Historical Total Response Times by Type (2007-2011) ........................................................ 44 Figure 13: 90th Percentile Dispatch Times (2007-2011) ........................................................................ 46 Figure 14: 90th Percentile Turnout Times (2007-2011) .......................................................................... 47 Figure 15: 90th Percentile Travel Times (2007-2011) ........................................................................... 49 Figure 16: Average Depth of Response Staffing.................................................................................... 51

APPENDICES Appendix A: Detailed Community Risk Assessment Appendix B: Fire Suppression Performance Targets

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Fire Master Plan Township of Wilmot December 2012

1.0 INTRODUCTION The Township of Wilmot initiated this Fire Master Plan (FMP) study to assess current and future levels of service and programs provided by the fire department. The Fire Master Plan is a strategic document that will assist the Township and Wilmot Fire Department with planning the delivery of fire protection services over the next ten year period with consideration for the 20 year planning horizon. Fire Master Plans are typically ten year plans, with a review of the plan conducted at the five year horizon.

Completion of the FMP recognizes the continued commitment of the Township’s Council and senior staff to providing the highest level of services and programs to the community in the most fiscally responsible and efficient manner.

This FMP provides a complete review of the current operations of the Wilmot Fire Department to assist Council in establishing key objectives for the department. The plan includes recommendations to address both short-term and long-term strategies for the Township, consistent with the fire master planning process outlined within the Office of the Fire Marshal, Ontario, Shaping Fire-Safe Communities Initiative.

The overarching goal of this report is to present a clear understanding of the existing and future requirements of the Wilmot Fire Department. Referencing best practices, including relevant standards and legislation, this report was prepared by completing an assessment of the following departmental administrative and operational components: Governance, legislation, by-laws and administration; Fire prevention and public education; Firefighter staffing and service agreements; Emergency response; Firefighter training; Apparatus, equipment and maintenance; Dispatch and communications; and Budgets and revenues.

The Fire Master Plan was developed with a broad and comprehensive stakeholder consultation program.

This included interviews with fire department and Township staff, roundtable discussion sessions with the volunteer firefighters at each of the three fire stations and continuous consultation with the Township’s Steering Committee.

1.1

Community Background

The Township of Wilmot was created in 1973 with the amalgamation of the municipalities of Wilmot and New Hamburg. Located in the heart of south-western Ontario, the Township of Wilmot is one of the seven lower tier municipalities which comprise the Regional Municipality of Waterloo. The Township is home to a population of approximately 19,2001 residents, largely located within the urban settlement areas of Baden and New Hamburg, with rural settlements in the communities of New Dundee Mannheim, Petersburg, Philipsburg, St. Agatha, Shingletown, Sunfish Lake, Foxboro Green, Wilmot Centre, Luxemburg, Lisbon and Haysville. The Township is forecasted to grow to a population of 22,300 by the year 2016 and 28,500 by 2029.

1

Population in 2011: 19,233, Statistics Canada, 2011 Census 1.0 Introduction Page - 1

Fire Master Plan Township of Wilmot December 2012

With a land area of approximately 264 square kilometres, the community contains an abundance of significant rural areas, agricultural lots and natural areas, including the Nith River, Provincially Significant Wetlands and environmentally sensitive areas.

1.2

Department Background

The Township of Wilmot Fire Department currently provides fire protection services from fire stations located in the communities of Baden, New Hamburg and New Dundee. Evidence of the history and tradition within each of the former volunteer fire departments located in these communities remains visible in each of these stations today. Pictures and plaques mounted on station walls reflect the years of dedicated service the volunteer firefighters have provided to their reflective communities.

This sense of community continues in the commitment of today’s volunteer firefighters as indicated by their individual and coordinated efforts to provide fire protections services to their local areas and the larger community. Each of the three fire stations continues to host individual volunteer firefighters associations that remain active in local fundraising efforts and support of their local communities.

In our view the history of the department is a critical component in understanding the current state of the department. Significant efforts have been made since amalgamation with the objective of managing the evolution of three very distinct volunteer fire departments into one unified composite department. In our view this fire master planning process reflects the commitment of Council to completing this objective.

Our observations confirm that achieving the goal of a single unified fire department is the number one priority of the volunteer firefighters, District Chiefs and the Fire Chief. Supporting this goal and ensuring the Township of Wilmot is meeting its legislative responsibilities by providing the most cost effective and efficient fire protection services possible are the strategic objectives of this Fire Master Plan.

1.0 Introduction Page - 2

Fire Master Plan Township of Wilmot December 2012

2.0 LEGISLATION 2.1

Legislation Fire Prevention and Protection Act, 1997

Within the Province of Ontario the relevant legislation for the operation of a fire department is contained within the Fire Protection and Prevention Act, 1997 (FPPA). The FPPA states that, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances.”

Developing a Fire Master Plan is recognized as an appropriate strategy in assessing the needs and circumstances within a specific community to assist local Council’s in developing an overall fire protection model for their community.

To further assist communities the Office of the Fire Marshal, Ontario (OFM) has developed the Comprehensive Fire Safety Effectiveness Model. The model identifies “three lines of defence” that can be utilized in responding to local community needs. The three lines of defence include:

I.

Public Education and Prevention;

II.

Fire Safety Standards and Enforcement; and

III.

Emergency Response.

To further assist municipalities the OFM has identified within previous reports the following further description of each line of defence: I. Public Education and Prevention: Educating residents of the community on means for them to fulfill their responsibilities for their own fire safety is a proven method of reducing the incidence of fire. Only by educating residents can fires be prevented and can those affected by fires respond properly to save lives, reduce injury and reduce the impact of fires; and II. Fire Safety Inspections and Enforcement: Ensuring that buildings have the required fire protection systems, safety features, including fire safety plans, and that these systems are maintained, so that the severity of fires may be minimized; and III. Emergency Response (Suppression): Providing well trained and equipped firefighters directed by capable officers to stop the spread of fires once they occur and to assist in protecting the lives and safety of residents. This is the failsafe for those times when fires occur despite prevention efforts.

The ultimate goal of any fire department is to prevent a fire. In utilizing these three lines of defence the Comprehensive Fire Safety Effectiveness Model emphasises the importance and value of preventing a fire. This is important from both an economic and life safety perspective. The model also recognises that developing programs and providing resources to effectively implement the first line of defence (a proactive public education and prevention program) can be an effective strategy to reduce and potentially minimize the need for the other lines of defence. The following are applicable sections of the FPPA for reference purposes:

2.0 Legislation Page - 3

Fire Master Plan Township of Wilmot December 2012 PART I: DEFINITIONS

1.(1) In this Act, “Fire protection services� includes fire suppression, fire prevention, fire safety education, communication, training of persons involved in the provisions of fire protection services, rescue and emergency services and the delivery of all those services

PART II: RESPONSIBILITY FOR FIRE PROTECTION SERVICES Municipal responsibilities

2.(1) Every municipality shall (a) establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention, and (b) provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances.

Services to be provided

(3) In determining the form and content of the program that it must offer under clause (1)(a) and the other fire protection services that it may offer under clause (1)(b), a municipality may seek the advice of the Fire Marshal

Review of municipal fire services

(7) The Fire Marshal may monitor and review the fire protection services provided by municipalities to ensure that municipalities have met their responsibilities under this section, and if the Fire Marshal is of the opinion that, as a result of a municipality failing to comply with its responsibilities under subsection (1), a serious threat to public safety exists in the municipality, he or she may make recommendations to the council of the municipality with respect to possible measures the municipality may take to remedy or reduce the threat to public safety.

Fire chief, municipalities Responsibility to council

6.(3) A fire chief is the person who is ultimately responsible to the council of a municipality that appointed him or her for the delivery of fire protection services

PART III: FIRE MARSHAL Powers of Fire Marshal

9.(1) the Fire Marshal has the power, (a) to monitor, review and advise municipalities respecting the provision of fire protection services and to make recommendations to municipal councils for improving the efficiency and effectiveness of those services (d) to issue guidelines to municipalities respecting fire protection services and related matters

Duties of Fire Marshal

9.(2) It is the duty of the Fire Marshal, (b) to advise municipalities in the interpretation and enforcement of this Act and the regulations (d) to develop training programs and evaluation systems for persons involved in the provision of fire protection services and to provide programs to improve practices relating to fire protection services

2.2

Office of the Fire Marshal, Ontario

As indicated above, the OFM has a role to both assist municipalities through interpretation and enforcement of the FPPA, and to develop training programs and evaluation systems.

One of these roles includes the review of compliance with the minimum requirements of a Community Fire Safety Program, which must include: a smoke alarm program with home escape planning; the distribution of fire safety education material to residents/occupants; inspections upon complaint or when requested to assist with code compliance (including any necessary code enforcement); and a simplified risk assessment.

2.0 Legislation Page - 4

Fire Master Plan Township of Wilmot December 2012

The OFM utilizes Public Fire Safety Guidelines as one of the primary ways of providing interpretation and guidance to municipalities. “PFSG 00-000-01 Framework for Setting Guidelines within a ProvincialMunicipal Relationship” provides information that is relevant to the analysis and recommendations of this report.

An excerpt from the background section of PFSG 00-000-01 provides further clarification to the OFM interpretation of the FPPA and municipalities responsibilities: “Municipalities are compelled to establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention. The act also states that municipalities are responsible for arranging such other fire protection services as they determine may be necessary according to their own needs and circumstances.

The relationship between the province and municipalities is based on the principle that municipalities are responsible for arranging fire protection services according to their own needs and circumstances”.

A further excerpt from the principles section of this PFSG provides even further clarity to municipalities responsibilities for providing fire protection services: 1.

2.

3.

2.3

Local needs and circumstances vary widely across the province. Therefore, the measures required to address these needs and conditions will also vary.

There are many ways in which individual needs and circumstances can be addressed.

Therefore, municipalities require flexibility to employ different strategies to achieve similar objectives.

Local council, in consultation with the fire chief, will determine the extent to which their needs and circumstances will be addressed. Some may choose to address specific risks more comprehensively than others. Provided serious threats to public safety are addressed, this is a reasonable and legitimate exercise of municipal responsibility.

Occupational Health and Safety Act

The Occupational Health and Safety Act, R.S.O. 1990 (OHSA) requires every employer to, “take every precaution reasonable in the circumstances for the protection of the worker”. The OHSA provides for the appointment of committees, and identifies the “Ontario Fire Services Section 21 Advisory Committee” as the advisory committee to the Minister of Labour with the role and responsibility to issue guidance notes to address firefighters-specific safety issues within Ontario.

Where 20 or more workers are regularly employed at a workplace, the OHSA requires the establishment of a Joint Health and Safety Committee (JHSC). The committee must hold regular meetings including the provision of agendas and minutes.

Firefighter safety must be a high priority in considering all of the activities and services to be provided by a fire department. This must include the provision of department policies and procedures, or Standard Operating Procedures (SOPs) that are consistent with the direction of the OHSA Section 21 Guidance Notes for the fire service.

2.0 Legislation Page - 5

Fire Master Plan Township of Wilmot December 2012

3.0 COMMUNITY RISK PROFILE The Office of the Fire Marshal, Ontario’s (OFM) Fire Risk Sub-model2 introduces the importance of community risk in the following paragraph: “Assessing the fire risk within a community is one of the seven components that comprise the Comprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing the relevant factors that characterize the community and applying this information to identify potential fire risk scenarios that may be encountered. The assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences.”

Community fire risks are further explained in detail within the OFM’s Fire Risk Sub-model as follows: “The types of fire risks that a community may be expected to encounter are influenced by its defining characteristics. For example, a “bedroom community” presents a different set of circumstances over one that is characterized as an “industrial town”. Communities that are distinguished by older buildings will pose a different set of concerns over those that are comprised of newer buildings constructed to modern building codes. Communities populated by a high percentage of senior citizens present a different challenge over ones with a younger population base.

Assessing fire risk should begin with a review of all available and relevant information that defines and characterizes your community. Eight key factors have been identified that contribute to the community’s inherent characteristics and circumstances. These factors influence events that shape potential fire scenarios along with the severity of their outcomes: Property Stock Building Height and Area Building Age and Construction Building Exposures Demographic Profile Geography/Topography/Road Infrastructure Past Fire Loss Statistics Fuel Load Utilizing the framework provided within the OFM’s Fire Risk Sub-model provides the opportunity to assess the potential fire risk scenarios that may be present by creating a Community Risk Profile. The profile can then be used to assess the current level of fire protection services provided, and identify where if any potential gaps exist, or areas that a municipal Council may want to consider in determining its own needs and circumstances as defined by the FPPA. This section contains a summary of the observations from each of the categories contained within the community risk profile and assessment. The detailed Community Risk Assessment is contained within Appendix A.

2

Source: Comprehensive Fire Safety Effectiveness Model, Fire Risk Sub-Model, June 2009 Office of the Fire Marshal, Ontario 3.0 Community Risk Profile Page - 6

Fire Master Plan Township of Wilmot December 2012

3.1

Summary of Community Risk Profile

In summary, the Township of Wilmot represents the typical level of risk that would be found in comparable municipalities within the Province of Ontario. These include smaller urban centres surrounded by large tracts of agricultural and environmentally protected areas forming a larger community. The geography, topography and road infrastructure are also consistent with those of similar communities. The road network layout is primarily a grid pattern of arterial rural roads and local roads adjacent to Highway 7/8.

Within the ten year horizon of this plan significant growth is not expected. Based on current projections the community is anticipated to grow at a modest rate of 2.4% annually during this period.

Residential occupancies dominate the community at 90.2% of the building stock. Agriculture and farmrelated buildings (not classified within the OBC) vary in size and use from small utility sheds to large livestock barns and are also very prevalent throughout the Township.

Within the province residential occupancies have historically accounted for approximately 72% of all structure fires and 86% of all fire related deaths. For the five year period from 2006 to 2010 the Township of Wilmot reported 47 fires of which 63% occurred in Group C - Residential occupancies, which is slightly lower than the provincial average.

The historic downtown core areas of Baden, New Hamburg and New Dundee represent some of the larger building mass and height. The inherent multi-use traditional of these downtown buildings include commercial on the ground floor with residential above. Combined these result in both life safety and fire risks that need to be considered in terms of regular inspections cycles and sustaining compliance with the Ontario Fire Code (OFC). The community has very few buildings that are higher than five stories.

The demographic profile is very consistent with that of the Province of Ontario. As a primarily English speaking community the population has a generally higher level of income and home ownership level than that of other communities within the province. The percentage of senior population is also consistent with that of the province and should be considered a high priority in terms of their vulnerability in the event of a fire. There is a slightly higher portion of children (aged 14 and under), which is likely a result of young couples moving out of the city to start families.

Geographic Information Systems (GIS) modeling of the actual emergency calls that occurred during the period 2007 to 2011 are reflected in the Existing Conditions Risk Profile Model. This risk profile indicates that the department has been able to respond from the current fire station locations to 100% of the calls (all call types) located in high risk zones and 62% of the calls in moderate risk zones in four minutes or less travel time. In a travel time of ten minutes or less the department has been able to respond to 87% of the calls located in moderate risk zones. In addition to travel time, the department’s total response time to fire calls includes dispatch time and turnout time. The 90th percentile dispatch time for fire calls in 2011 was 1 minute and 15 seconds. The 90th percentile turnout time for fire calls, department-wide in 2011 was 5 minutes and 16 seconds. Therefore within a total response time of 10 and a half minutes the department is predicted to respond to 62% of moderate risk zones. Within a total response time of 16 minutes 30 seconds, the department is predicted to respond to 87% of the moderate risk zones.

The GIS model was also used to approximate existing and future geographic coverage of the existing risk zone areas. Under existing conditions, 100% of high risk geography, 38% of the moderate risk geography and 24% of the low risk geography is covered within four minutes of predicted travel time. This scenario also results in 92% of the moderate risk zones and 90% of the low risk zones being covered within the ten minute predicted travel time. The detailed methodology and results (including figures) from the GIS modeling of the Risk Profile are contained within Appendix A. 3.0 Community Risk Profile Page - 7

Fire Master Plan Township of Wilmot December 2012

The Community Fire Risk Assessment will form the basis for strategically planning the fire protection plans, optimizing the three lines of defence and developing department procedures, programs and services.

3.0 Community Risk Profile Page - 8

Fire Master Plan Township of Wilmot December 2012

4.0 ADMINISTRATION DIVISION The Wilmot Fire Department operates as a composite department. It is comprised of a full-time Fire Chief, one part-time Fire Prevention Officer and volunteer firefighters (part-time suppression staff).

Under the leadership of the full-time Fire Chief the department has a long history of providing fire protection services through the use of volunteer firefighters, from three fire stations. The current complement of volunteer firefighters has continued this tradition of dedication and commitment to attaining a high level of efficiency and effectiveness in the services they provide to the communities located within the Township.

The Administration Division and ultimately the Fire Chief, oversees and monitors the resources and operations of the suppression, prevention and public education, and firefighter training functions of the department. The Administration Division is responsible for the preparation and management of budgets in addition to personnel management, resource management and records management for the overall fire department.

4.1

Department Services

The fire department is organized into the following five major functions to provide service to the Township of Wilmot: Fire prevention (e.g. fire safety inspections, by-law enforcement, public education, and fire investigation); Emergency operations (e.g. structural, vehicle, and wild land fire suppression services, emergency patient care, hazardous material incident response, and special rescue services); Training and staff development (e.g., ensuring all staff acquire and maintain the necessary knowledge, skills and abilities to perform the job function); Technical maintenance (e.g. ensuring all apparatus and equipment is inspected regularly and maintained); and Administration and support services (e.g. maintaining adequate resources to effectively provide support to all departmental activities).

4.0 Administration Division Page - 9

Fire Master Plan Township of Wilmot December 2012

4.2

Department Organization

In addition to the full-time Fire Chief the current Council approved staff complement includes one fulltime administration assistant (shared with other departments), three volunteer District Chiefs, 12 volunteer Captains, one part-time Fire Prevention Officer, and 60 volunteer firefighters.

In each of the three stations the Fire Chief is supported by a District Chief who is directly responsible for overseeing operations for fire suppression crews and the overall management of volunteer personnel on a daily basis. Volunteer firefighters within each station are divided into four companies. Each company comprises a Captain and up to five firefighters. In the absence of the regular Officer in charge, an Officer of the next lower rank, or an Acting Officer may be designated to perform their duties, and they will assume all duties and responsibilities of such rank.

The current Wilmot Fire Department Organizational Chart is illustrated in Figure 1.

Figure 1: Department Organizational Chart Council

CAO Fire Prevention Officer

Fire Chief

Administrative Assistant

District Chief Station #1

District Chief Station #2

District Chief Station #3

Senior Captain

Senior Captain

Senior Captain

Captains

Captains

Captains

Firefighters

Firefighters

Firefighters

Note: blue = full-time, orange = permanent part-time, green = volunteer

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Fire Master Plan Township of Wilmot December 2012

4.3

Department Management Team

4.3.1 Fire Chief As the head of the fire department, the Fire Chief is responsible for administration and operations of the Wilmot Fire Department, including the delivery of Fire Protection Services. The Fire Chief reports to Council through the Township’s Chief Administrative Officer (CAO). Within the Wilmot Fire Department job description document prepared by the Township in 2002, the scope of the position and summary of duties is as follows: Member of the senior management team; and Responsible for the Administration of the Fire Department and Emergency Planning. Works along with other members of the management team in fulfilling the corporate responsibilities of the Municipality. Works within the confines of the Fire Protection and Prevention Act 1997, and Municipal By-laws to establish and regulate a Fire Department.

Examples of the primary responsibilities of the Fire Chief include the following: Prepare, present and administer the fire department budget.

Plan, co-ordinate and direct the firefighting, fire prevention, rescue, and life and property saving functions in the municipality.

Report to and take command at major incidents.

Supervise all fire prevention activities.

Supervise the training programs, and assist in the development of these programs.

Maintain discipline and high moral in the department.

Prepare specifications for major equipment and call for tenders.

Purchase all major equipment and ensure proper maintenance of same.

Ensure that all stations are maintained and kept in good repair.

Attend conferences and seminars to keep abreast of changes in equipment and methods of operations, to ensure that the department will maintain, and where possible, will improve the level of service to the municipality.

Recommend to Council, the hiring of personnel as required to maintain the manning level of each station.

Submit ‘Standard Incident Reports’ to the Fire Marshal’s Office for every incident.

Investigate and report cause of fire to proper authorities.

Revises the Emergency Plan and ensures that it is in compliance with Provincial legislation.

4.3.2 District Chiefs District Chiefs report to the Fire Chief and are directly responsible for overseeing the operations for firefighters and the overall management of personnel on a daily basis for a respective fire station. Within the Wilmot Fire Department job description document prepared by the Township in 2007, the scope of the position and summary of duties is as follows: Member of the fire department management team; and Responsible for the Administration of his/her assigned fire station. Works along with other officers and members in fulfilling the corporate responsibilities of the Department. Works within the confines of the Fire Protection and Prevention Act 1997, and Municipal By-laws to establish and regulate a Fire Department.

4.0 Administration Division Page - 11

Fire Master Plan Township of Wilmot December 2012

Examples of the primary responsibilities of a District Chief include the following: Co-ordinates and directs firefighting, rescue, and life and property saving functions, and responds to enquiries and complaints from the public as required.

Reports to and takes command at fire and medical emergency scenes and ensures that incident management procedures are put in place in accordance with department standard operating procedures.

Ensures ‘Standard Incident Reports’ are completed for every incident.

Performs preliminary investigation of the cause of fires and reports to the Fire Chief immediately if the cause is undetermined or suspicious in nature. Assists the Fire Chief and Chief Fire Prevention Officer with further investigation as required.

Supervise the training programs, and assist in the development of these programs.

Maintains discipline, high moral, and encourages cooperation between all department personnel.

Confers with the Fire Chief to ensure that the activities of the department are consistent with the goals and objectives of the municipality as established by Council.

Meet regularly with the Senior Captain and other officers to ensure that they are following the procedures and goals of the department.

Preparation and updates of pre-fire plans for major occupancies in his/her response area.

Conducts recruitment programs and recommends the hiring and or promotion of personnel to the Fire Chief.

Attend District Chief's meetings.

Based on interaction with the three current District Chiefs as part of this review process our observations conclude that individually they provide progressive and positive leadership to their respective stations.

Together they provide a unified leadership team that supports the Fire Chief and the overall administration of the department.

4.3.3 Deputy Fire Chief The Fire Department Establishing and Regulating By-law currently defines Deputy Fire Chief as: “the person(s) appointed by the Fire Chief or CAO to act on behalf of the Fire Chief in the case of absence or a vacancy, and to carry out the duties as assigned.”

The Fire Chief and CAO have been utilizing this authority effectively by assigning one of the District Chiefs to carry out the role of Deputy Fire Chief when the Fire Chief is on vacation or otherwise not available.

One of the challenges of this strategy is that the current process actually puts the roles and responsibilities of the Fire Chief directly onto the District Chief who is temporarily assigned the role of acting Deputy Fire Chief. Based on our review the District Chief is actually being appointed to the roles and responsibility of Fire Chief because the Fire Chief is absent.

In our view there would be a positive benefit to revising the current practice to reflect an appointment of one of the District Chiefs to the position of Acting Fire Chief on an annual basis, and removal of the rank of Deputy Fire Chief from the Fire Department Establishing and Regulating By-law.

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Fire Master Plan Township of Wilmot December 2012

This strategy would provide a qualified member of the department readily available to assume the position of Fire Chief in his absence without the need for short-term appointments. Our recommendation is to replace the current reference to Deputy Fire Chief within the Fire Department Establishing and Regulating By-law to reflect the position of Acting Fire Chief as “the person appointed by the Fire Chief and CAO on an annual basis to act on behalf of the Fire Chief in the case of absence or a vacancy, and to carry out the duties as assigned.�

4.3.4 Administrative Support The key role of the shared Administrative Assistant is to provide the Fire Chief with administrative support, as required and directed. This includes such duties as data entry, standard incident reporting (OFM), records management, statistical compilation of data for reporting, and payroll data collection and complication.

Based on our review there is sufficient administrative support currently within the department. Further review of the administrative support may be required at the midpoint (5-year point) of this Fire Master Plan, or alternatively as the department initiates and expands the fire prevention and public education recommendations contained within this plan.

4.4

Administrative Workspace

The existing administrative workspace capacity is adequate for the current staff volume. Future staffing expansions (e.g. additional staff) could not be accommodated without providing additional workspace.

4.5

Annual Report

Ongoing evaluation and monitoring of the level of fire protection services provided by the fire department in consideration of the evolution of risk within the community are the foundation for sustaining an effective and appropriate level of service to meet the community needs.

The Township of Wilmot supports ongoing evaluation and monitoring strategies across all departments through quarterly and annual reporting to the CAO and Council. The annual summary report prepared by the Wilmot Fire Department contains the analysis and information that would be found in a typical fire department annual report.

This current practice of preparing an annual summary report to inform Council on the performance of the department and to identify where new trends may be evolving, or new programs may be required reflects best practices in sustaining a responsive and effective level of fire protection services for the community.

The fire department also completes and submits Annual Compliance Reports to the Office of the Fire Marshal, Ontario.

Including an update of the Community Risk Profile within the annual summary report would provide the CAO and Council with further information to monitor the services provided by the fire department. We recommend that the Community Risk Profile be updated and included within the fire department annual summary report.

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Fire Master Plan Township of Wilmot December 2012

4.6

By-laws & Agreements

4.6.1 By-laws The Municipal Act, R.S.O. 1990 requires a municipality to enact a number of by-laws to operate a municipality and specifically their fire department. In addition to meeting this legislative responsibility by-laws provide the community with important information with regard to the level of service that a municipality intends to provide. By-laws also provide municipal staff with the authorization to provide these services as well as the responsibility to achieve the prescribed service level.

Our review of the existing by-laws approved by the Township of Wilmot indicates that all required bylaws are in place.

Ensuring these documents are regularly reviewed and updated to reflect any changes in service level or changes in authority are important functions. The current Fire Department Establishing and Regulating By-law (By-law Number 2011-15) was passed in March 2011, replacing the previous by-law from 2000.

The Fire Chief currently reviews all by-laws relating to the fire department on an annual basis. Subject to Council’s approval of the recommendations contained within this FMP we recommend that the current Fire Department Establishing and Regulating By-Law be updated to reflect the changes recommended.

4.6.2 Mutual Aid Agreements Mutual aid agreements are predetermined plans that allow a participating fire department to request assistance from a neighbouring fire department. Public Fire Safety Guideline (PFSG 04-05-12) provided by the OFM identifies the information required to develop and approve these agreements.

There are two main scenarios when mutual aid agreements are enacted: When a fire department is on-scene at an emergency, has received information that immediate assistance is required, it may ask for mutual aid assistance from a neighbouring fire department.

2. Where distance and/or conditions are such that a neighbouring fire department could provide a more timely response, fire departments may immediately request a simultaneous response from a participating fire department.

1.

Our review indicates that the Wilmot Fire Department is an active participant in the “Waterloo Region Mutual Aid Program “and the current agreement is serving the municipality well.

4.6.3 Automatic Aid Agreements (Fire Protection Agreements) In contrast to mutual aid agreements, automatic aid agreements are programs designed to provide and/or receive assistance from the closest available resource, irrespective of municipal boundaries, on a day-today basis.

The obvious advantage of implementing an automatic aid program is the person experiencing the emergency receives fire services from the closest available provider by supplying seamless service through the elimination of artificial service boundaries. Some of the additional benefits that an automatic aid agreement provides include:

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Fire Master Plan Township of Wilmot December 2012

an enhancement of the level of public safety; a reduction of the critical element of time between the commencement of a fire and the application of an extinguishing agent to the fire by dispatching the closest available assistance; the reduction of life, property and environmental losses; and the improvement of public and fire-fighter safety.

The Township of Wilmot purchases fire protection services from the Township of Wellesley through a fire protection agreement including firefighting, extrication services and medical assistance responses to a defined area of Wilmot identified within By-Law No. 2010-03. Our review indicates that this is an appropriate agreement for this area of Wilmot.

The Township of Wilmot provides fire protection services to the Township of Blandford-Blenheim through a fire protection agreement including firefighting, extrication services and medical assistance responses to a defined area of the Township of Blandford-Blenheim identified within By-Law No. 2010-02. Our review indicates that this is an appropriate agreement for this area of the Township of Blandford-Blenheim.

As a component of the Fire Master Plan we considered opportunities for enhancing or expanding automatic aid agreements into and out of the Township of Wilmot. This analysis is shown in Figure 2.

Figure 2 indicates that Waterloo Fire Station 2, which is staffed with full-time firefighters, may be able to provide automatic aid (including initial and depth of response) to the northeast corner of the Township of Wilmot, subject to their availability. A fire protection agreement with the City of Waterloo to provide initial response and depth of response services to an area which is currently identified as being outside of the four and eight minute travel times for any of Wilmot’s three fire stations should be considered. We recommend that the Fire Chief and CAO meet and discuss this strategy with staff from the City of Waterloo.

Figure 2 also identifies that Kitchener Fire Stations 5 and 7, both staffed with full-time firefighters, may be able to provide automatic aid (including initial and depth of response) in the east and southeast corner of the Township of Wilmot subject to their availability. A fire protection agreement with the City of Kitchener to provide services to an area which is currently identified as being outside of the four minute travel time for any of Wilmot’s three fire stations could improve initial response coverage and should be considered. There are additional opportunities to consider which may enhance depth of response along the eastern boundary areas of the Township. We recommend that the Fire Chief and CAO meet and discuss this strategy with staff from the City of Kitchener.

The Township of North Dumfries requested consideration of developing an automatic aid agreement with the Township of Wilmot for the provision of fire protection services to an area of the Township of North Dumfries. Utilizing the fire station location and travel distance information available we considered this request. In our view there would only be a minimal portion of the Township of North Dumfries which could potentially benefit from automatic aid from Wilmot Fire Department’s Station 2, located in New Dundee. Providing this service in the future may be a possibility, however until the recommendations of this FMP are considered by Council and implemented, supporting this request would further increase the emergency call volume and demand on the New Dundee firefighters, which would not be recommended at this time.

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Woolwich

TOWNSHIP OF WILMOT

St. Clements FD (Wellesley Station 2) Volunteer

Wellesley

FIRE MASTER PLAN

!>

Automatic Aid FIGURE # 2

!> !>

Wellesley FD (Wellesley Station 3) Volunteer

Potential Automatic Aid Fire Station

Travel Times 4 min @ Network Speed

Waterloo

5 min @ Network Speed 6 min @ Network Speed

!>

!>

Waterloo FD (Station 2) Full-Time

Existing Fire Station

7 min @ Network Speed 8 min @ Network Speed

Kitchener FD (Station 5) Full-Time

9 min @ Network Speed 10 min @ Network Speed

!>

Low Risk Moderate Risk

Kitchener

Station 1 Baden

High Risk

Cambridge

!>

Extreme Risk

!>

!>

Kitchener FD (Station 7) Full-Time

Station 2 New Dundee 0 0.5 1

2 km

SCALE 1:100,000

!>

Station 3 New Hamburg

²

MAP DRAWING INFORMATION: DATA PROVIDED BY MNR

North Dumfries

MAP CREATED BY: JJA MAP CHECKED BY: SC MAP PROJECTION: NAD 1983 UTM Zone 17N

FILE LOCATION: I:\GIS\126148 - Wilmot FMP\Mapping\Wilmot_AutoAid.mxd

PROJECT: 12-6148

FINAL STATUS: DRAFT DATE: 08/31/12

Fire Master Plan Township of Wilmot December 2012

4.6.4 Tiered Response Agreement Within the Province of Ontario emergency response to incidents involving medical aid by the local fire department are commonly included within a regional Tiered Response Agreement. These agreements are valuable in defining the levels of service that a fire department will provide in the context of the regionally based provision of ambulance services. The Township of Wilmot participates in a Tiered Response Agreement with the Regional Municipality of Waterloo.

The information presented below provides an overview of the current tiered response agreement: “In addition to notifications required under CACC SOP 11, the Wilmot Township Fire Department agrees to respond to select Code-4 medical emergencies (Criteria listed in Appendix A) within the Township of Wilmot, for the purpose of providing medical first response as tiered by the Cambridge Central Ambulance Communications Centre on behalf of The Regional Municipality of Waterloo, Emergency Medical Services (EMS): a. Cambridge Central Ambulance Communications Centre (CACC) will tier the Wilmot Township Fire Department automatically utilizing EMS-TIF, if applicable, and in any case within sixty (60) seconds of committing the call to the CACC System for all call types identified in Appendix A attached hereto. b. Cambridge CACC will not tier the Wilmot Township Fire Department to Nursing Homes, Medical Clinics, Medical Facilities or Retirement Homes where there is a Medical Doctor (MD), Registered Nurse (RN) or Registered Practical Nurse (RPN) on scene with access to oxygen.

Exception: All Vital Sign Absent calls will be tiered regardless if there is a MD, RN or RPN on scene with access to oxygen. c. This agreement acknowledges that fire emergencies take precedence over requests for tiered response, but the Wilmot Township Fire Department will respond to the identified criteria if not already engaged. d. During emergencies declared under the Region’s emergency plan or local municipal emergency plans, the declared emergency takes precedence and may preclude response to tiered response calls.”

Our review of the current tiered response agreement indicates that it reflects an appropriate level of services based on best practices.

4.6.5 Dispatch Services Agreement Dispatch services are currently provided by the Kitchener Fire Department, under a contract, fee for service agreement. The current agreement covers a five year term commencing January 1, 2012. The agreement defines the level of services, fees associated, operations, governance structure and performance measures.

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Fire Master Plan Township of Wilmot December 2012

Best practices in Ontario for the provision of emergency call taking and dispatching reflects the use of the National Fire Protection Association (NFPA) “1221 Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems” as the guideline for provision of services. We note that although the current dispatch agreement does not include specific reference to this standard the agreement does include similar performance measures for call taking and dispatching as those contained in the NFPA 1221 standard.

Our review of the agreement and services provided indicates that sustaining an agreement with Kitchener Fire Department for the provision of fire dispatching is the most practical and cost efficient strategy currently available to the Township of Wilmot. Kitchener Fire Department also provides dispatch services to City of Kitchener, City of Waterloo, Township of Wellesley and Township of Woolwich.

During our review of dispatch services we were informed by the CAO and Fire Chief that this is an area of services that is presently under review.

4.7

Mission Statement

The OFM identifies the importance of a fire department mission statement within PFSG 03-02-13 “Master Planning Process for Fire Protection.” As a mission statement the information should identify the goals and objectives of the department, identify the primary stakeholders (volunteer firefighters) and acknowledge the types of services and commitment of the department for success.

In our experience developing a mission statement within a fire department can be an excellent team building, and vision sharing exercise. The Township of Wilmot fire department does not currently have a mission statement. In our view creating a mission statement for the fire department would also provide an opportunity to align the department with the strategic direction of the Township. We recommend that developing a mission statement be utilized as a strategy in team building and defining a shared vision for the Wilmot Fire Department.

Once completed, we recommend that the Mission Statement of the department be posted in a public, visible and prominent location within all three of the department’s fire stations. The statements should also be included within any formal reports, such as the department’s annual report.

4.8

Departmental Policies and Standard Operating Guidelines

Best practices within the Ontario fire service reflect the use of department policies as the appropriate tool to communicate specific direction to all staff. In comparison to standard operating guidelines, which provide a framework to guide decision making, department policies reflect more stringent and defined practices that minimizes variance from the directive given. An example of a fire department policy would be a “Respect in the Workplace Policy” where specific direction is given to all members of the department that reflects the policy of the department in consideration of relevant legislation governing the topic.

Standard operating guidelines (SOGs) are used within the fire service to establish a written statement to guide the performance or behaviour of departmental staff, whether functioning alone or in groups.

Standard operating procedures are intended to: enhance safety; increase individual and team effectiveness; improve training efficiency; improve orientation for entry-level staff; improve risk management practices; prevent / avoid litigation;

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Fire Master Plan Township of Wilmot December 2012

create objective post-incident evaluations; and permit flexibility in decision making.

Best practices and the OFM indicate that creating and empowering a committee of fire service staff to research, develop, and draft standard operating procedures can be a successful model for administering these core documents. Activities that impact on firefighter safety, the most common emergency operations, or high risk operations should be the top priority for a fire and emergency service to have in place.

Standard operating procedures are required to be finalized and approved by the Fire Chief. Procedures should then be in place within the fire and emergency service to ensure that these procedures are distributed to all staff affected, understood by all staff and followed as directed. Applicable procedures to record this process of development, approval and distribution must be in place to ensure due diligence on behalf of the fire and emergency service and the municipality, as the employer.

Health and safety is an essential consideration for fire and emergency services. In addition to the relevant sections of Ontario’s Occupational Health and Safety Act (OHSA) the fire service is also required to comply with the OHSA Section 21 Guidance Notes.

Our review of the department’s current policies and standard operating guidelines indicates that they reflect best practices within Ontario’s fire service today. The department currently provides access to departmental policies and S.O.G.s at each station. As part of developing the recommended comprehensive training program consideration should be given to the use of the new FirePro software and other opportunities to further enhance the access and ongoing training and education of the volunteers. In our view this strategy supports the goal of a single unified fire department by providing a coordinated source of information for all volunteer firefighters.

4.9

Departmental Records Management

The department is in the process of implementing FirePro computer software as the digital records management platform. The FirePro software includes specific records management applications for the major areas of the fire department including fire prevention and education, training, apparatus and equipment maintenance, and components of emergency response.

All alarm statistics are currently stored and managed within FirePro. Apparatus, vehicle and equipment maintenance records are also managed using FirePro. Fire prevention inspections and other activities are currently being entered and tracked with FirePro, as well as any new department data on a go-forward basis.

FirePro records management software is now being utilized to maintain training records for all members of the department. The department is working on inputting the historical training records into the program. Once completed the FirePro program will include copies of all training received, courses taken and/or certificates received. In addition to this process of managing the training records, we recommend that a practice be established to ensure each individual personally signs-off on his/her completed training sessions. This practice should also require the trainer to sign the record. This process is considered a best practice with regards due diligence in providing training evidence to authorities, such as the Ministry of Labour Ontario.

The department’s administrative assistant inputs the majority of the records into FirePro. This includes Standard Incident Reporting (SIR) data to meet OFM requirements. The Fire Chief performs reviews of records for quality and completeness prior to issuing to the OFM.

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Fire Master Plan Township of Wilmot December 2012

The administrative assistant is able to retrieve data and reports from the FirePro program, as requested by the Fire Chief, to prepare reports for Council or other management purposes.

4.10 Community Emergency Management (CEM) Under the Ontario Emergency Management and Civil Protection Act, the Solicitor General has authority to make regulations setting standards for the development, implementation and maintenance of emergency management programs required by communities. It is the responsibility of every municipality, minister of the Crown and designated agency, board, commission and other branches of government to ensure that their respective emergency management plans conform to the standards set within the Act. The Act also requires every municipality to adopt the emergency management program by by-law.

Emergency Management Ontario (EMO) has developed a core emergency program, with elements focused on supporting emergency preparedness and response activities. The program requires designating an Emergency Management Coordinator (EMC), having a written emergency response plan and forming a program committee. Part II of the Ontario Regulation 380/04 lays out the Municipal Standards for emergency management. There are six main standards, relating to: Emergency Management Program Coordinator; Emergency Management Program Committee; Municipal Emergency Control Group; Emergency Operations Centre; Emergency Information Officer; and Emergency Response Plan.

The emergency plan is designed in a generic fashion which allows it to respond to situations that are unexpected and require a coordinated response and recovery. The plan is based on a hazard identification and risk assessment (HIRA), which is a required component under the Emergency Management and Civil Protection Act. The plan also includes a primary Emergency Control Group and Emergency Support Group, which consists of all of the significant stakeholders responsible for managing the community and adjacent areas.

This group would be assembled, if the emergency plan is activated, to approve the decisions required to control situations that arise during an emergency.

Within the Township of Wilmot, the Fire Chief has been assigned the role of Community Emergency Management Coordinator (CEMC), which requires on-going leadership in maintaining, testing and training of the emergency response plan. The Emergency Management Coordinator is responsible for the overall implementation the emergency management program, and is required to report to the Ministry’s emergency management program committee on his/her work. The Township received a letter from the Ministry of Correctional Services on March 15, 2012 indicating that it had successfully completed the mandatory emergency management elements required by the Act. The Emergency Management Program for the Township of Wilmot is established through By-law No. 2004-45, “A by-law to establish and emergency management program for the protection of public safety, health, the environment, the critical infrastructure, and property, and to promote economic stability and a disaster-resilient community.�

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Fire Master Plan Township of Wilmot December 2012

As listed in the by-law, the Emergency Management Program Committee is scheduled to review the emergency plan annually and recommend changes to the program, as appropriate, and refer the recommendation to Council for further review and approval.

Currently, the Emergency Management Committee members include the Township’s Chief Administrative Officer (CAO), Mayor, Fire Chief/CEMC and Director of Public Works. The Alternate Community Emergency Management Coordinator is also allotted a position on the committee; however, no one is presently assigned to this role.

Based on our experience the position of CEMC plays an important role in a real emergency. Identifying the Fire Chief as the primary CEMC can in an actual emergency create a significant conflict. The Fire Chief is often committed to an operational role within the fire department and quite often assigned as the Emergency Site Manager. Where possible we recommend that the Fire Chief be identified as the alternate CEMC for this reason.

This report recommends implementing the position of Public Education/Training Officer. In our view this position should be assigned the role of primary CEMC for the municipality. This position would be able to shift some workload from the Fire Chief who currently plans and delivers the in-house annual emergency planning training, and participates in Regional Emergency Management programs and meetings.

It is recommended that the role of primary CEMC be assigned to the proposed position of Public Education/Training Officer, and the Fire Chief be designated as the alternate CEMC.

4.11 Administration Division Summary and Recommendations The Wilmot Fire Department is a “composite” model fire service comprised of full-time staff and volunteer firefighters. Under the leadership of the Fire Chief the department provides the typical fire protection and tiered response services of a predominately volunteer department. The administrative functions such as monitoring key department performance measurers; operating and capital budgeting expenditures; and corporate priorities such as the Community Emergency Management Plan are a challenge.

There is reference to the position of Deputy Fire Chief within the current Establishing and Regulating ByLaw although this position does not currently exist. Recommendations to provide further support to the overall administrative functions of the department as part of an overall strategy to optimize the services provided by the department are included within this plan.

The Township of Wilmot effectively utilizes fire protection agreements to supplement the services provided by their fire department. The fire department is also an active participant in the regional mutual aid plan and tiered response agreement.

As a result of our review and assessment of the Administration Division, we recommend that: 1.

The fire department Establishing and Regulating By-Law be revised to remove the position of Deputy Fire Chief and include the position of Acting Fire Chief to be appointed by the CAO and Fire Chief on an annual basis.

2.

Subject to Council’s approval of the recommendations contained within this FMP the current Fire Department Establishing and Regulating By-Law be updated.

3.

The annual summary report prepared by the fire department include an updated Community Risk Profile to provide the CAO and Council with further information to monitor the services provided by the fire department.

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Fire Master Plan Township of Wilmot December 2012 4.

The fire department develop a mission statement as a tool in team building and defining a shared vision for the Wilmot Fire Department aligned with the strategic direction of the Township of Wilmot.

5.

As part of developing the recommended comprehensive training program consideration be given to the use of the new FirePro software and other opportunities to further enhance access to information and ongoing training and education for the volunteers.

6.

The role of primary CEMC be assigned to the proposed position of Public Education/Training Officer, and the Fire Chief should be designated as the alternate CEMC.

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Fire Master Plan Township of Wilmot December 2012

5.0 FIRE PREVENTION & PUBLIC EDUCATION The Township of Wilmot carries out fire prevention enforcement and public fire safety education programs, within the guidelines of the Fire Protection and Prevention Act, 1997 (FPPA). Under the FPPA, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances.�

The Office of the Fire Marshal, Ontario (OFM) describes the minimum requirement for a community fire safety program as including: a smoke alarm program with home escape planning; the distribution of fire safety education material to residents/occupants; inspections upon complaint or when requested to assist with code compliance (including any necessary code enforcement); and a simplified risk assessment.

Based on our analysis the current fire prevention/education program responds to the minimum requirements of the FPPA. In our view there are opportunities that should be considered for the Township of Wilmot to further optimize the use of the Comprehensive Fire Safety Effectiveness Model and enhance the overall fire protection plan for the community.

5.1

Comprehensive Fire Safety Effectiveness Model

This Division is responsible for coordinating the initiatives of the Wilmot Fire Department to optimize the impact of applying the first two lines of defence identified within the Ontario Fire Protection Model including:

Public Education and Prevention Fire Safety Standards and Enforcement Emergency Response Best practices of other municipalities within the province have shown that optimizing the efforts dedicated to these lines of defence can have a positive impact on reducing emergency call volume, and increasing the overall level of fire protection within the community.

Utilizing these lines of defence across the community and prioritizing the programs to address areas of the community identified by the Community Risk Profile should be considered a strategic priority of this plan. For example, high priority should be given to optimizing the first two lines of defence in areas of the community where vulnerable occupants reside and where emergency response times may be longer as a result of extended travel times by fire suppression staff.

5.2

Staffing

Within this division the Wilmot Fire Department currently employs a part-time (21 hours per week) Fire Prevention Officer (FPO) responsible for coordinating all activities within the division. The FPO reports directly to the Fire Chief and is also responsible to enforce the Fire Prevention Regulations of the Municipality and Province.

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Fire Master Plan Township of Wilmot December 2012

The current FPO has done well to respond to the fire prevention and public education priorities of the department. The workload of the position has required that the priorities of the position be targeted primarily at fire prevention inspection activities.

Table 1 below identifies the time commitments associated with the current fire prevention and public educations activities provided by the fire department.

Table 1: Fire Prevention and Public Education Activities Activity / Program Name

Time Commitment

Inspections, Re-inspections

70%

Inspection on Complaint or Request

20%

Public Education

10%

Time commitment for the FPO is 21 hours a week.

100%

As indicated above 90% of the current activities of the FPO are targeted at the fire inspections. Based on our analyses this level of effort is consistent with the conclusions of the Community Risk Profile with regard to the number of occupancies, age of the buildings and number of inspections required. In our view this activity does not reflect the needs of the community with regard to the level of public education programs. Public education programs have proven to be a valuable tool in improving the overall fire protection plan of a community, and ultimately as a strategy for reducing dependence on fire suppression.

In our view phasing-in additional hours of work for the FPO within the mid-term horizon of this FMP should be considered as a strategy to optimize the use of fire prevention programs and the first two lines of defence. In our experience there is sufficient evidence to support that increasing the efforts dedicated at the first two lines of defence can have a positive impact on the fire suppression resource requirements of a department. For the Township of Wilmot this strategy directly relates to sustaining the use of volunteer firefighters by mitigating, where possible, an increase in emergency call volume.

This report also recommends a new position of Public Education/Training Officer to be considered a priority for the Township of Wilmot to further enhance the level of public education programming within the community. Implementing this programming is recommended within this FMP as part of a coordinated strategy. This strategy includes increasing the depth of full-time resources within the department through a phased approach targeted at this and other priorities within the Training Division.

5.2.1 Fire Prevention Inspections The job description for the position of FPO identifies that this position is responsible for organizing a fire inspection program for all classes of buildings and occupancies within the municipality. As indicated above the FPO’s current work load is being driven by the need for fire inspections and requests or complaints. The Department targets all apartments, multi-unit residences, properties with apartments above retail businesses, restaurants, and churches annually. Other buildings are inspected if the time permits. All inspection records are kept on Fire Pro.

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Fire Master Plan Township of Wilmot December 2012

The department has been very successful in working with building owners when fire inspections have identified areas of non-compliance. Through collaborative efforts the majority of building owners have been able to complete the necessary work to achieve compliance with the Ontario Fire Code (OFC). In some instances this has not been the situation and the department must utilize its authority to issue orders and work through the prosecution process to achieve compliance.

This practice is not uncommon across Ontario and has resulted in the OFM releasing Technical Guideline OFM-TG-01-2012 “Fire Safety Inspections and Enforcement”. An excerpt from this new guideline states that the scope is “to assist municipalities and their fire services in meeting their fire safety inspection and enforcement responsibilities in the most effective and efficient way possible, as provided by the FPPA”.

In our view this guideline supports the direction of the first two lines of defence and provides municipalities with tactics, particularly related to enforcement of the OFC, in situations where achieving compliance has been difficult to complete.

Historically across the province there has not been a high frequency of fire inspectors enforcing the prosecution process. This trend is changing provincially with the support of the OFM to assist municipalities. Locally the fire department has been actively involved in a significant prosecution process that has taken a large commitment of time from the FPO and the Fire Chief to prepare and present. In our view and based on the experience of other municipalities this is a trend that will continue in the future. Although these files may be low frequency, the time commitment of the FPO to conduct the inspection, prepare the required documentation, and participate in the prosecution process requires the dedication of a significant amount of time.

Best practices reflect that fire inspection cycles should be identified and approved by Council within the Fire Department Establishing and Regulating By-Law. The current By-Law 2010-92 the core services including fire prevention that the department is authorized to provide. Specifics with regard to the types of occupancy inspections and the inspection cycles are not currently included.

Our review of the Community Risk Profile and analysis of the current fire inspection schedule reflects that the department is providing a level of inspections that is consistent with the existing risk. One area for consideration is “Group F – Industrial” that is currently inspected upon request. In our view these occupancies can present unique risks to other occupancies and the community if left unattended. In our view consideration should be given to conducting fire inspections of Group F – Industrial occupancies on an annual basis.

Our review of the workload of the current FPO reflects that there would be insufficient time to implement this increased level of fire inspections at this time. Subject to approval of the recommendations within this FMP, such as the new position of Public Education/Training Officer and an increase in the hours available for the FPO, the increased fire inspection levels could be accommodated.

In our view a list of the occupancy types and inspection cycles should be included within the Establishing and Regulating By-Law to authorise the fire department to conduct these activities and indicate to the community the levels of service to be provided. Identifying key performance measures such as fire prevention inspection cycles is also a core component of fire master planning and the ongoing monitoring and evaluation of the levels of fire protection services provided by the fire department.

We recommend including the current the fire inspection cycle identified in Table 2 below in the fire department Establishing and Regulating By-Law, and subject to approval of Council in the future the revision of Group F – Industrial to the annual inspection schedule:

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Fire Master Plan Township of Wilmot December 2012

Table 2: Township of Wilmot Fire Inspection Performance Measures Occupancy Classification

Buildings

(OBC)

Current Inspection Target (Performance Measure)

Group A – Assembly

Schools, Recreation Centres (Arenas), Curling/Golf Centres

Annually

Group A – Assembly

Licensed Properties, Nursery/Day Care Facilities, Churches, Special Occasion Permits

Upon Request

Group B – Institutional

Hospital, Nursing homes, Homes for Special Care

Annually

Group C – Residential

Apartments regulated by Part 9.3 of the OFC

Annually

Apartments regulated by Part 9.5 of the OFC

Annually

Apartments regulated by Part 9.8 of the OFC

Annually

Hotels, Motels and occupancies regulated by Part 9.9 of the OFC

Annually

Home Inspection Program

Upon Request

Group D - Business

Business and Personal Services Occupancies

Upon Request

Group E - Mercantile

Mercantile Occupancies

Upon Request

Group F - Industrial

Factories and Complexes

Upon Request

5.2.2 Fire Investigations The fire department is required by the FPPA to conduct fire investigations to determine the origin and cause of all fires and report this information to the OFM. Subject to the severity of the incident and factors such as a fatality or large dollar loss the OFM will assign a fire investigator to conduct the investigation. Currently the FPO supports the Fire Chief when available to conduct fire investigations.

Although this is not a high frequency task it can be a time-consuming and extended process on the part of the FPO or alternatively the Fire Chief.

Under the leadership of the Fire Chief and with the support of the District Chiefs training for fire cause investigations for other Officers within the department has been planned. Utilizing the NFPA 921 standard this strategy once completed will provide positive benefits in providing more resources to conduct the required fire investigations.

5.2.3 Fire Safety Plans The FPO has a level of participation in reviewing fire safety plans required by the Ontario Fire Code. On occasion, if requested by the building department, the FPO will conduct a fire safety inspection prior to occupancy. New construction plans are not a large area of workload for the FPO. The priorities of the department with regards to prevention and education are summarized in Table 3.

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Fire Master Plan Township of Wilmot December 2012

Table 3: Fire Prevention and Public Education Priority Setting Worksheet Priority

Status

Effectiveness, Goals/Objectives Existing programmes ensure compliance with minimum FPPA requirements?

Fire Safety Priority

Current fire prevention / public education programmes that address the fire safety priority Options for enhancement / improvement to address the fire safety priorities & community risk

(In order of Priority) Fire Prevention (Inspection) Activities

Public Education Activities

Y/N

Fire Prevention Activities

Public Education Activities

1) Children

Group homes, schools, etc. Inspected annually

All children in Grades 2, 4 and 6 bussed to classes at Children’s Safety Village annually. (400 plus students per year) Various school groups, brownies, boy scouts, etc. Tour fire stations on request.

Y

Inspect schools & occupancies annually.

2) Seniors

Seniors homes and apartments inspected annually.

Fire Safety presentations done for Seniors groups on request.

Y

Inspect institutional occupancies Develop & deliver public education & apartments annually. programs (e.g. Older and Wiser) and target vulnerable / aging communities.

Enhanced home smoke alarm program.

3) All Residents

Inspections carried out on complaint or request

Annual open house held at one of the fire stations, on a rotational basis.

Newspaper ads for fire safety reminders such as checking smoke alarms, special holiday fire safety tips.

Distribute educational materials during the open houses, and when visits to the stations occur.

Y

Inspect assembly occupancies annually. Inspect higher density residential (apartments, hotels, etc.) annually.

Home Inspection Program continues upon request.

4) Industrial / Commercial?

Inspections done on complaint or request. Attempt to inspect Occasional assistance provided to train staff in fire safety. This more as time permits, but no schedule. is done on request, and if time permits.

Y

Inspect industrial annually.

5.0 Fire Prevention & Public Education Page - 27

assembly Enhance quality and quantity of public education programs delivered at local schools.

Enhance existing smoke alarm program by delivering a home smoke alarm program. Aim to reach all residences in Township on three or four year cycle, prioritizing higher risk areas first.

Enhance community-wide public education programming, according to risk areas.

occupancies Develop and deliver programs (e.g. fire extinguisher training). Deliver upon request / consider fee for service options.

Fire Master Plan Township of Wilmot December 2012

5.2.4 Public Education Programs The Wilmot Fire Department acknowledges the benefits and importance of providing fire and life safety public education programming to Township’s residents.

Currently, it is the responsibility of the FPO to prepare and evaluate the public education program of the department. The core public education programs that are implemented across the Township of Wilmot are as follows: Smoke Alarm Program; Safety Village School Program; and Presentations to seniors’ homes.

The Township of Wilmot has a valuable public education resource available with the Children’s Safety Village. This facility is located on the campus of Waterloo Regional Police Headquarters at 200 Maple Grove Road in Cambridge, only approximately 25 kilometres away from Wilmot’s Township Offices.

The Children’s Safety Village hosts and facilitates hands-on fire safety education for elementary school children. The Mission Statement is: “The Children’s Safety Village is committed to providing quality progressive safety programs, in a positive and interactive atmosphere, through community partnerships, to protect our most valuable resource… our children.”

Table 4 summarizes the attendance at the facility by elementary classes and students from Wilmot Township.

Table 4: Children Safety Village Attendance (2009-2012) Year

2011

Grade

# Classes

# Students

Grade 6

3

64

Grade 4

1

28

Grade 2

10

212

14

304

Grade 6

6

151

Grade 4

5

102

Grade 2

8

172

19

425

Grade 6

5

140

Grade 4

6

142

Grade 2

7

139

Total

2010

Total

2009

Total

5.0 Fire Prevention & Public Education Page - 28

421

Fire Master Plan Township of Wilmot December 2012

Best practices of other municipalities has proven that expanding and enhancing public education efforts can be an effective strategy to reduce emergency call volume and increase the overall level of fire protection within a community. Within a fire department utilizing volunteer firefighters, managing and where possible reducing emergency call volume can have a positive impact on the sustainability of the volunteer model.

The provision of a proactive and effective public education program is a key component of an integrated community fire safety plan. The current workload and priorities of the FPO do not, in our view, provide sufficient time to respond to the public education priorities.

In our view optimizing the provision of public education programming within the community should include two components. First, the implementation of a dedicated staff resource to develop, schedule and deliver a public education program targeted at the conclusions of the community risk profile, and secondly to optimize the use of the volunteer firefighters in areas such as the department smoke alarm program.

We recommend the implementation of the position of Public Education/Training Officer within the shortterm horizon of this FMP as an initial contract position (21 hours per week). In our view this position should then transition to a full-time position during the mid-term horizon of this FMP. Optimization of the volunteers in delivering public education is contained within the smoke alarm program section of this report. Further analysis to support the recommended position of Public Education/Training Officer is contained within the Training Division section of this report.

5.2.5 Smoke Alarm Program One of the legislated requirements of the FPPA is the delivery of a Smoke Alarm Program. Achieving compliance with the provincial smoke alarm requirements has been a challenge for fire departments across Ontario. As a result of many recent fire tragedies, the OFM has introduced a “zero tolerance policy” for occupancies requiring smoke alarms.

It is an important element in the department’s “first line of defence” as part of optimizing the fire protection services provided. The Wilmot Fire Department is currently meeting the minimum requirements of the FPPA; however the existing program is reactive rather than proactive. As part of the initiative to optimize public education, consideration should be given to developing and delivering a revised and enhanced Smoke Alarm Program to Township residents.

Utilizing the Community Risk Profile the department should particularly emphasize a Home Smoke Alarm Program as the “first line of defence” in areas of the community (such as rural residential areas) where extended emergency response times are present due to factors such as travel time for emergency response. As well, it is recommended to prioritize delivery of the new program to areas of known risks such as older building stock or historic fire loss areas. The department could then target a three or four year delivery to all residences within the Township based on priority.

The revised program should consider the goals and objectives established by the OFM and the needs of the Township, in order to provide the most effective solution to ensuring the safety of the Town residents.

In our discussions with the volunteer firefighters there was strong support for this initiative and the participation of the volunteers. In our view optimising the use of the volunteer firefighters in delivering an enhanced smoke alarm program would be an effective strategy in optimizing the overall fire protection plan.

5.0 Fire Prevention & Public Education Page - 29

Fire Master Plan Township of Wilmot December 2012

We recommend implementing a thorough process of tracking and monitoring the delivery of the smoke alarm as another key performance measure for the department. . Including this information within the fire department quarterly reports and annual summary to the CAO and Council provides an effective strategy to monitor the overall effectiveness of the program.

5.3

Fees for Service

The Town of Wilmot currently charges the same fees as MTO for most of its services (i.e. calls to open burns without permits, motor vehicle collisions, etc.). There is a $40.00 fee for a Burn Permit to inspect the site, a $100.00 fee for a copy of inspection or incident reports; and a fee of $150.00 for an inspection for real estate purposes.

The Fire Chief reviews all fees on a regular basis and where necessary makes recommendations for revisions and/or new fess as required.

5.4

Workspace

The part-time Fire Prevention Officer has office space allocated at the Township Offices at 60 Snyder’s Road West in Baden. The existing work space is meeting the needs of the division.

5.5

Fire Prevention/Public Education Division Summary and Recommendations

The Township of Wilmot currently carries out fire prevention enforcement and public fire safety education programs, within the guidelines of the Fire Protection and Prevention Act, 1997 (FPPA), and is meeting the legislated responsibilities of the FPPA. The current workload of the Fire Prevention Officer is appropriately targeted at fire inspections based on the conclusions of the Community Risk Profile. This provides a limited amount of time to develop and deliver a public education program that also responds to the conclusions of the Community Risk Profile.

Introducing key performance measures such as fire inspection cycles, public education activities and the impact of the department smoke alarm program will be beneficial in assisting the CAO and Council in monitoring the overall effectiveness of the fire department.

As a result of our review and assessment of the Fire Prevention and Public Education Division we recommend that: 1. The new position of Public Education / Training Officer be implemented within the short-term horizon of this Fire Master Plan initially as a contract position (21 hours per week).

2. The position of Public Education/Training Officer be phased-in to result in a full-time position prior to the end of the mid-term horizon (2016 to 2018) included within the proposed implementation plan of this Fire Master Plan.

3. The position of Fire Prevention Officer be phased-in to result in a full-time position prior to the end of the mid-term horizon (2016 to 2018) included within the proposed implementation plan of this Fire Master Plan.

4. The current fire inspection cycle identified within Table 2 of this Fire Master Plan be included within the Fire Department Establishing and Enabling By-Law to define the level of fire inspection performance measures for the department.

5.0 Fire Prevention & Public Education Page - 30

Fire Master Plan Township of Wilmot December 2012

5. The Fire Chief and Fire Prevention Officer review OFM Technical Guideline OFM-TG-012012 “Fire Safety Inspections and Enforcement� and where required revise or develop new Standard Operating Guidelines for the department.

6. The department optimize the participation of volunteer firefighters in the delivery of an enhanced Smoke Alarm Program including risks identified by the Community Risk Profile and where extended travel times are present.

7. A thorough process to track and monitoring the delivery of the enhanced smoke alarm program be developed and included within the fire department quarterly reports and annual summary report to the CAO and Council as a strategy to monitor the overall effectiveness of the program.

5.0 Fire Prevention & Public Education Page - 31

Fire Master Plan Township of Wilmot December 2012

6.0 FIRE SUPPRESSION The Township of Wilmot shares the characteristics of many primarily rural / agricultural communities in Ontario that include small urban centres surrounded by large sections of rural geography. Providing emergency response in these rural municipalities in the form of firefighting resources that could effectively mitigate a fire in a timely manner can be difficult and challenging. Travel distances and water supply are only two factors that can impact the ability to provide this type of mitigation within an established time frame.

Wilmot Fire Department operates as a composite fire department. It has a full-time Fire Chief who performs administration and management of the overall department. The Chief is supported by three operational District Chiefs who manage the three volunteer fire stations distributed across the Township.

6.1

Emergency Response

The Comprehensive Fire Safety Effectiveness Model recognises the high importance of the first two lines of defence in mitigating the potential of a fire occurring. In the event a fire does occur and emergency response is required the model defines the third line of defence as: “III. Emergency Response (Suppression): Providing well trained and equipped firefighters directed by capable officers to stop the spread of fires once they occur and to assist in protecting the lives and safety of residents. This is the failsafe for those times when fires occur despite prevention efforts.”

In our view the three lines of defence represent a proven model for optimising the benefits of pro-active prevention and education programs; appropriate use of standards and code enforcement and, as the model suggests, the provision of emergency response as the ‘fail safe’ for when these efforts when incidents occur despite all efforts towards optimization of the first two lines of defence.

A core component of evaluating the overall effectiveness of providing fire suppression services includes considering a measurement-supported set of performance targets (i.e. service standards) and setting clear goals and objectives. Within Ontario there is no specific legislated standard that a community must achieve with regard to the type of firefighter (career/part-time/volunteer) or the number of firefighters required to respond to any given incident. The FPPA does require that a municipal Council assess this level of resources based on determining its “local needs and circumstances”.

To assist in the evaluation of the level of fire suppression resources required by the Township of Wilmot this study identified the different guidelines and standards that are currently relevant within Ontario.

Through comparison of each with a typical fire scenario this analysis presents insight into the industry best practices based on a risk-based approach.

6.2

Fire Suppression Performance Targets

To assist in determining the level of fire suppression resources required by Township of Wilmot and the Wilmot Fire Department, Appendix B provides a detailed evaluation of the current fire suppression staffing guidelines and standards utilized across Ontario.

In our view the framework for identifying community risk and deploying sufficient firefighting resources to address the community risk present is accurately presented in PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk. Within these analyses of fire suppression performance factors we have included consideration of the staffing deployment of PFSG 04-08-12 as well as the relevant NFPA Standards.

6.0 Fire Suppression Page - 32

Fire Master Plan Township of Wilmot December 2012

For comparison purposes, this assessment utilizes the example of a fire risk scenario in a 2,000 square foot, two-story single-family dwelling without a basement and with no exposures present. This represents a typical home of wood frame construction located in a suburban neighbourhood having access to a municipal water supply including fire hydrants. Within this study this occupancy would be classified as a Group C - Residential Occupancy (moderate risk).

In our view best practices within the Ontario fire service to address firefighter health and safety, and the operational tasks associated with the fire risk scenario presented, reflect a staff deployment of four firefighters arriving on the same apparatus or alternatively arriving on scene simultaneously for the initial response and a minimum of fourteen firefighters deployed on-scene for a depth of response.

For emergency responses to fire risks with a high or extreme risk level additional firefighting staff deployment should be automatically dispatched. In general, this can be achieved by deploying other apparatus, stations or through automatic aid and fire protection agreements with other communities.

Determining an appropriate travel time performance target for both the initial response and depth of response is the second major component of determining fire protection service levels. PFSG 04-08-12 does not contain a specific performance target for travel time in comparison to those in NFPA 1710 and 1720. Travel times for emergency response vehicles can be impacted by many factors such as traffic congestion, traffic management systems (including traffic lights and stop signs), and extended travel times due to large geographic areas.

In our view identifying a travel time target should include consideration of the overall community fire protection plan, including optimization of the first two lines of defence. Emphasis should also be placed on the importance of time with respect to the potential of fire growth and extension from the area or room of origin. For example, the presence of residential sprinklers would have a positive effect on the control and containment of the fire and mitigate some of the impact of extended travel times.

In summary, identifying travel time performance targets should be a decision considered by Council in response to the Community Fire Risk Profile, and community needs and circumstances as defined by the FPPA. In summary the evaluation concludes the following: Initial Response: Initial response is consistently defined as the number of firefighters initially deployed to respond to an incident. Fire service leaders and professional regulating bodies have agreed that until a sufficient number of firefighters are assembled on-scene, initiating tactics such as entry into the building to conduct search and rescue, or initiating interior fire suppression operations are not safe practices. If fewer than four firefighters arrive on scene, they must wait until a second vehicle, or additional firefighters arrive on scene to have sufficient staff to commence these activities.

Our evaluation of initial response concludes that deploying a minimum of four firefighters, either arriving on the same apparatus or assembling on-scene, prior to initiating these activities is current best practices within Ontario.

An initial response of four firefighters once assembled on-scene is typically assigned the following operational functions. The Officer in charge shall assume the role of Incident Command; one firefighter shall be designated as the pump operator; one firefighter shall complete the task of making the fire hydrant connection; and the fourth firefighter shall prepare an initial fire attack line for operation.

6.0 Fire Suppression Page - 33

Fire Master Plan Township of Wilmot December 2012

The assembly of four firefighters on the fire scene provides sufficient resources to safely initiate some limited fire suppression operations. This first crew of four firefighters is also able to conduct the strategic operational priority of “size-up� whereby the Officer in-charge can evaluate the incident and where necessary, request an additional depth of resources that may not have been dispatched as part of the initial response.

Depth of Response: Based on the fire risk scenario presented, our evaluation concludes that a depth of response of fourteen firefighters reflects current best practice within Ontario. The objective of this performance measure is the assembly of fourteen firefighters on-scene to safely complete the operations required to mitigate a fire in a typical single family detached dwelling, assessed as having a moderate risk level. Similarly to the initial response, the assembly or deployment can be achieved in many different ways including multiple apparatus, multiple fire departments, or any combination of full-time, part-time or volunteer firefighters.

Each of these initial response and depth of response performance targets should be considered minimum staffing levels, based on the example fire risk scenario presented as a typical single family detached dwelling assessed as having a moderate risk level. Incidents involving an extension of the original fire, or higher risk occupancies will require additional resources.

For the purposes of this analysis this report recognises the variable turn out times of full-time and volunteer firefighters. The depth of response target references the components of travel time and assembly of an appropriate number of firefighters to effectively mitigate the prescribed emergency.

The strategy to dispatch a higher number of firefighters as part of the initial response to a high or extreme level of risk occupancy can be achieved in a number of ways. These include: Dispatching of additional staff and apparatus from the same fire department Call back of firefighters (full-time or volunteers) to staff additional apparatus Fire Protection Agreements (Automatic Aid Agreements) with other fire departments to provide additional firefighters and apparatus.

Utilizing the Community Fire Risk Assessment we recommend that emergency response protocols for occupancies identified as having high or extreme risk be developed to automatically dispatch additional fire suppression from the Wilmot Fire Department or alternatively developing Fire Protection Agreements with neighbouring communities where necessary.

6.3

Fire Suppression Operations

Current department operations for emergency response to an incident are initiated with a single-station page of the volunteers. If the incident is a confirmed structure fire, the first responding station requests a second station be paged-out. The initial responding staff may also request additional resources, such as a tanker apparatus from a third station, or mutual aid provider, as applicable.

The department has implemented a progressive approach to responding to medical calls as a volunteer department. For medical emergency responses, a special medical page alerts a maximum of eight firefighters to respond. A single vehicle is staffed with these personnel to respond to the medical call.

This technique provides the appropriate level of service to meet the needs of the type of call and reduces the overall strain and burden that large volumes of medical calls can put on a volunteer fire department model.

6.0 Fire Suppression Page - 34

Fire Master Plan Township of Wilmot December 2012

6.3.1 Initial Response Areas Figure 3 below presents the current initial response coverage areas of the three Wilmot fire stations, and the area of Wilmot included within the fire protection agreement with the Township of Wellesley.

Our review of the current initial response capabilities of the department based on historical call data reflects an appropriate level of 4 volunteer firefighters being assigned to respond. More specific assessments of the individual components of the overall response time are included within this section of the report.

Figure 3: Current Initial Response Coverage Areas

6.0 Fire Suppression Page - 35

Fire Master Plan Township of Wilmot December 2012

6.3.2 Depth of Response Areas The department currently utilizes dispatch protocols to assign the depth of resources based on historical call data and geography. The current deployment strategy for depth of response has served the community well and provides a solid foundation for the proposed optimization strategy to achieve 14 firefighters within a revised depth of response dispatch protocol.

Figure 4 presents the current depth of response coverage areas of the three Wilmot fire stations, and the area of Wilmot included within the fire protection agreement with the Township of Wellesley.

Figure 4: Current Depth of Response Coverage Areas

The analysis within Appendix B confirms that in order to address firefighter health and safety, and the fire-ground critical tasks associated with responding to an incident in the fire risk scenario presented (moderate risk), a minimum deployment of 14 firefighters is required. A deployment of 14 firefighters provides the depth of resources to conduct the primary fire-ground critical tasks including performing incident command, establishment of a sufficient water supply for firefighting, assembling the resources to conduct an interior attack on the fire and to complete a coordinated rescue of occupants.

6.0 Fire Suppression Page - 36

Fire Master Plan Township of Wilmot December 2012

The NFPA 1710 and 1720 Standards identify travel time as a performance indicator for measuring both initial response and depth of response. For example, NFPA 1710 prescribes the depth of response performance target of 14 firefighters arriving on scene within a travel time of 8 minutes to an objective of 90% of incidents. PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk authored by the OFM does not contain a specific travel time performance objective.

The OFM fire progression curve identifies that where areas of the community may have extended response times due to long travel distances, in excess of 10 minutes, the potential for the fire to have spread from the room of origin, and or already reached a “flashover� state, will be significantly higher. In our view this is a critical time factor to consider. Deploying a sufficient depth of resources, 14 firefighters, to a moderate risk fire scenario, with a travel time not to exceed 10 minutes reduces the potential of a flashover and the potential to contain the fire to the room of origin.

At present the Wilmot Fire Department does not track the arrival time of assembling 14 firefighters on scene. Based on our experience this is not uncommon in comparable municipalities across Ontario.

Implementing new dispatch protocols to deploy a depth of response of 14 firefighters assigned to the appropriate apparatus will assist in providing the ability to track this performance target.

The new dispatch protocol should consider the historical emergency call data and overall response time of each station in determining the appropriate apparatus required to achieve the recommended 14 firefighter deployment to all areas of the community.

Analyses of the historical emergency call data will also provide insight into time of day and availability of volunteer firefighters to consistently achieve the proposed depth of response dispatch protocol. A further consideration in developing the new protocol should be the automatic dispatch of the department’s aerial apparatus to any confirmed structure fire. The current practice of dispatching this apparatus as requested does not support optimization of the full impact of this apparatus in managing/mitigating the growth of a major fire.

6.3.3 Automatic Aid Agreements (Fire Protection Agreements) As indicated within the Administration section of this report the Wilmot Fire Department currently participates in several fire protection agreements.

The current fire protection agreements were not developed based on the depth of response protocol of deploying 14 firefighters. There are areas of the community where the proposed depth of response protocol may benefit from including an automatic response from neighbouring fire departments to assemble the 14 firefighters on scene. In our view the first step in revising the depth of response protocol requires an evaluation by the Wilmot Fire Department management team to identify their internal capacity to achieve this target. Following this exercise, if required, discussions with the neighbouring fire departments may require some revisions to the current fire protection agreements.

6.0 Fire Suppression Page - 37

Fire Master Plan Township of Wilmot December 2012

6.3.4 Call Volume A summary of the volume of emergency calls in the Township Wilmot for the period 2007 to 2011 is presented in Figure 5. Over this period the department has experienced relatively consistent call volumes with the largest variance being 13% in terms of the number of emergency calls. There is an average of 649 calls per year over the five year period.

Figure 6 summarizes the annual call volumes at each of the three fire stations within the municipality.

Baden Station has the highest five year average annual call volume at 282 calls. New Hamburg Station has historically experienced the second highest call volume, with a five year average of 266 calls. New Dundee has experienced a five year average of 101 calls per year. In 2011 New Hamburg Station experienced its average call volume, while the other two stations’ annual call volumes were slightly higher than their respective averages.

Figure 5: Historical Annual Call Volume (2007 - 2011)

Call Volume by Year

Number of Calls

750 700 650 600

700 638

608

620

2009

2010

678

550 500 2007

2008

2011

Year

Figure 6: Historic Annual Call Volume by Station (2007-2011)

Number of Calls

Annual Call Volume by Station 500 450 400 350 300 250 200 150 100 50 0

2007 2008 2009 2010 2011

Baden

New Hamburg Call Type

6.0 Fire Suppression Page - 38

New Dundee

Fire Master Plan Township of Wilmot December 2012

6.3.5 Incident Types There were a total of 141 fire-related calls over the five year period resulting in an average of approximately 28 calls per year. Table 5 gives the detailed statistics of numbers of calls within the major categories of medical, motor vehicle collisions (MVC), fire and other.

The fire-related calls represent approximately four percent of the total calls. Medical calls are the most frequent type of emergency response call and comprise approximately 50 percent of the total calls.

Figure 7 provides a breakdown of the call volume by type for the years 2007 to 2011.

Table 5: Summary of Incident Types Incident Type1

2007

2008

2009

2010

2011

Medical

350

321

306

301

344

MVC

70

54

55

45

58

Fire

49

28

39

11

25

Other

231

235

208

263

251

Total

700

638

608

620

678

Figure 7: Historical Call Volume by Type (2007-2011)

Call Volume by Type 500 450

Number of Calls

400 350 300 250

2007 2008 2009 2010 2011

200 150 100 50 0 Fire

Medical

Other

Call Type

As shown in Figure 7 above, the volume of fire calls has remained relatively stable, with a slight decreasing trend over the past five years. Enhancing public education and fire prevention programs are an effective strategy to maintaining and enhancing the downward trend of fire and fire related call volumes, and ideally reducing overall fire loss within the Township. The volume of medical calls and other calls have also remained relatively consistent over the past five years.

6.0 Fire Suppression Page - 39

Fire Master Plan Township of Wilmot December 2012

The majority of the emergency calls within the Township that the fire department responds to are medical calls. The percentages of calls by type are shown in Figure 8. Medical calls comprise 50% of the department’s call volume. The department also responds to a large percentage of motor vehicle accidents and alarms, as these each comprise 8% of the department’s overall call volume. Other calls, not contained within the listed five specific categories comprise 29% of the department’s calls. Fire calls comprise only 4% of the department’s calls. These percentage breakdowns of calls are typical within the industry for a department and Township such as Wilmot.

Figure 8: Percentage of Calls by Type

Percentage of Calls by Type (2007-2011)

4%

Fire (4%) 29%

Medical (50%) Motor Vehicle Accidents (8%) Alarm (8%) 50%

1%

Rescues (1%)

8%

Other (29%) 8%

6.0 Fire Suppression Page - 40

Fire Master Plan Township of Wilmot December 2012

6.3.6 Incident Types by Station Figures 9-11 display the volumes of fire, medical and other types of calls responded to by Station 1 (Baden), Station 2 (New Dundee) and Station 3 (New Hamburg) respectively.

Figure 9: Calls by Type - Baden Station

Call Volume by Type - Baden Station 180

Number of Calls

160 140 2007

120

2008

100

2009

80

2010

60

2011

40 20 0 Fire

Medical

Other

Call Type

As shown above, the majority of Baden’s calls are ‘other’ categories of calls, including rescues, motor vehicle collisions and carbon monoxide calls.

Figure 10: Calls by Type, New Dundee Station

Call Volume by Type - New Dundee Station 70

Number of Calls

60 50

2007

40

2008 2009

30

2010 2011

20 10 0 Fire

Medical

Other

Call Type

As shown above, New Dundee responds to a relatively even number of medical calls and other calls.

6.0 Fire Suppression Page - 41

Fire Master Plan Township of Wilmot December 2012

Figure 11: Calls by Type, New Hamburg Station

Number of Calls

Call Volume by Type - New Hamburg Station 200 180 160 140 120 100 80 60 40 20 0

2007 2008 2009 2010 2011

Fire

Medical

Other

Call Type

As shown above, New Hamburg Station response to a high number of medical calls, in comparison to ‘other’ calls.

6.0 Fire Suppression Page - 42

Fire Master Plan Township of Wilmot December 2012

6.3.7 Total Response Times Total Response Time is noted within NFPA 1720 (Table 4.3.2 Staffing and Response Time) as follows: “Response time begins upon completion of the dispatch notification and ends at the time interval shown in the table.”

The table referred to in NFPA 1720 is replicated in Table 6. As per NFPA 1720, we assessed the department’s response time as turnout time and travel time only (excluding the dispatch component).

Table 6: NFPA 1720 Table 4.3.2 Staffing and Response Time

Demographics

Minimum # of Firefighters Responding

Response Time (Turnout + Travel) in Minutes

>1000 people per square mile

15

9

Suburban Area

500-1000 people per square mile

10

10

Rural Area

<500 people per square mile

6

14

Remote Area

Travel Distance + or – 8 miles

4

Dependent upon travel distance

Special Risks

To be determined by fire department

To be determined by fire department

Determined by authority having jurisdiction

Demand Zones

Urban Area

6.0 Fire Suppression Page - 43

Fire Master Plan Township of Wilmot December 2012

Figure 12 presents a summary of historical response times for the first arriving vehicle from 2007 to 2011. The response time for this first response is calculated as the sum of turnout time and travel time.

Township of Wilmot five year average 90th percentile total response times are approximately 450 seconds (7 ½ minutes) for medical calls and approximately 520 seconds (8 ž minutes) for fire / other calls. These response times measure well against the NFPA 1720 response times of 9 minutes in urban areas, 10 minutes in suburban areas and 14 minutes in rural areas. The important component is that 1720 is aiming to assemble a depth of response in the listed response times. The data presented in Figure 12 represents the first responding vehicle response time. Therefore the department would require multiple apparatus (two to four vehicles depending on staffing) arriving simultaneously within the urban and suburban areas to meet the NFPA 1720 standard. As multiple stations and apparatus are dispatched to fire calls, we consider it very probably that Wilmot is achieving this level of staffing and response within Wilmotâ&#x20AC;&#x2122;s urban and suburban areas. The rural areas are considered to be meeting the staffing and response with the initial arriving vehicles (depending on vehicle staffing).

Figure 12: Historical Total Response Times by Type (2007-2011)

90th Percentile Departmental Response Time (seconds)

Response Time (NFPA 1720 - Turnout +Travel Times) 1200 1000 2007

800

2008

600

2009 2010

400

2011

200 0 Fire

Medical Call Type

6.0 Fire Suppression Page - 44

Other

Fire Master Plan Township of Wilmot December 2012

6.3.8 Response Times by Station Table 7 below summarizes the 90th percentile response time (turnout time plus travel time) for each of the three stations, in comparison to the overall department. Compared to the historic 90th percentile average of the overall department, Baden Station’s response times are slightly higher than average for fire, medical and other calls. New Dundee Station’s response times have historically been below average for fire and medical calls, but longer than average for other call types. New Hamburg Station’s response times have historically been below average for fire, medical and other call types. Travel times are likely the largest variation between the three fire stations.

Table 7: Historic 90th Percentile Response Times by Station (2007-2011) Fire Department Fire Medical Other

2007 747 649 777

2008 952 707 762

2009 798 703 771

2010 707 701 902

2011 797 701 895

Average 524 448 522

Baden Fire Medical Other

2007 781 767 796

2008 955 798 757

2009 853 846 765

2010 648 848 930

2011 904 809 915

Average 573 527 537

New Dundee Fire Medical Other

2007 656 701 911

2008 600 742 900

2009 732 660 894

2010 375 672 1081

2011 624 642 1097

Average 473 442 607

New Hamburg Fire Medical Other

2007 666 503 572

2008 807 559 691

2009 534 578 707

2010 707 548 668

2011 534 566 669

Average 471 402 464

6.3.9 Dispatch Times Dispatch Time has been defined above to include “The time that it takes for the person responsible for “alarm answering”, and “alarm processing” to be able to receive the call, and dispatch the appropriate apparatus and staff to respond to the emergency”.

In comparison the NFPA 1221 – Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems, defines Dispatch Time as: “Emergency Alarm Processing / Dispatching: A process by which an alarm answered at the communications centre is transmitted to emergency response facilities (ERFs) or the emergency response units (ERUs) in the field.”

6.0 Fire Suppression Page - 45

Fire Master Plan Township of Wilmot December 2012

The NFPA 1221 standard is an industry best practice for dispatch time requirements and it is utilized by many fire departments in Ontario. It requires the processing of the alarm call (dispatching) to be completed within 60 seconds, for 90% of all calls (90th percentile), and within 90 seconds for 99% of calls. This means that 90 out of every 100 calls are required to be dispatched within 60 seconds and 99 out of every 100 calls must be dispatched within 90 seconds.

The 90th percentile dispatch times for the Wilmot Fire Department are displayed in Figure 13.

90th Percentile Dispatch Time (seconds)

Figure 13: 90th Percentile Dispatch Times (2007-2011)

Dispatch Times 300 250 2007

200

2008

150

2009

100

2010 2011

50 0 Fire

Medical

Other

Call Type

(Note: 2008 dispatch data is unavailable) From the statistics above, the department’s historic (2007-2011) average 90th percentile dispatch times were less than the 80 second standard for medical calls. The historic 90 th percentile dispatch times were less than the 90 second standard for fire calls for the years 2009, 2010, and 2011 but above the 90 second standard for all other type calls. The department’s dispatch provider is achieving the standard for medical and fire calls, which is excellent. Consideration could be made to requesting improvement towards the standard for ‘other’ calls, as the NFPA 1221 performance measure is listed within the dispatch agreement between the Township and Kitchener Fire Services. This is currently being reviewed by various stakeholders.

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Fire Master Plan Township of Wilmot December 2012

6.3.10 Turnout Times Turnout Time is defined above as “the time interval that begins from when the emergency response staff receives the required dispatch notification, and ends at the beginning point of travel time’.

In comparison turnout time as defined by the NFPA, within the Standard for Organization and Deployment of Fire Suppression Operations by Career Fire Departments (NFPA 1710), as: “the time interval that begins when the emergency response facilities (ERFs) and emergency response unit (ERUs) notification process beings by either an audible alarm or visual annunciation of both and ends at the beginning point of travel time.”

This NFPA standard is specifically targeted at fire departments utilizing full-time firefighters available to respond directly from the fire station. It is recognised within the industry that volunteer firefighters must respond from home or work and therefore have extended turnout times as they must first travel to the fire station.

Within this review understanding and monitoring turnout times is an important component of understanding the overall total response time. This is particularly important in identifying if there are changes and to monitor trends.

Figure 14 presents a summary of Wilmot Fire Department’s historical turnout times from 2007 to 2011.

The department responds with an average 90th percentile turnout time of less than 4.5 minutes. This is consistent with best practices among volunteer fire departments comparable to Wilmot Township. Fulltime firefighters are often compared to the NFPA 1710 standard for turnout time, which targets 80 seconds for fire and special hazard calls and 60 seconds for medical calls. This would be an aggressive standard to compare volunteer firefighters against.

90th Percentile Turnout Time (seconds)

Figure 14: 90th Percentile Turnout Times (2007-2011)

Turnout Times 450 400 350 2007

300

2008

250 200

2009

150

2010

100

2011

50 0 Fire

Medical Call Type

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Other

Fire Master Plan Township of Wilmot December 2012

6.3.11 Turnout Times by Station Table 8 shown below summarizes the historic 90th percentile turnout times for the overall department and the three fire stations.

Baden Station’s historic 90th percentile average turnout times are slightly below the department average or fire calls and other calls and slightly above the average for medical calls. New Dundee Station’s historic 90th percentile average turnout times are slightly below the department’s average for fire, medical and other calls. New Hamburg Station’s historic 90th percentile average turnout times are slightly below the department average for medical calls and slightly higher for fire and other calls.

Table 8: Historic 90th Percentile Turnout Times by Station (2007-2011) Fire Department Fire Medical Other

2007 288 323 322

2008 382 348 374

2009 298 377 393

2010 340 352 370

2011 316 350 377

Average 245 247 256

Baden Fire Medical Other

2007 279 339 322

2008 422 333 378

2009 298 384 369

2010 352 384 373

2011 309 334 358

Average 242 261 253

New Dundee Fire Medical Other

2007 277 261 329

2008 277 281 324

2009 281 300 347

2010 192 299 379

2011 345 297 435

Average 221 222 245

New Hamburg Fire Medical Other

2007 287 307 313

2008 322 359 375

2009 242 374 416

2010 328 347 357

2011 305 356 377

Average 264 246 267

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Fire Master Plan Township of Wilmot December 2012

6.3.12 Travel Times Travel Time has been defined above as “The travel time interval begins when the assigned emergency response apparatus begins the en-route travel to the emergency, and ends when the apparatus arrives at the scene”.

In comparison the NFPA 1710 standard defines travel time as: “The time interval that begins when a unit is en route to the emergency incident and ends when the unit arrives at the scene.”

Historical (2007-2011) 90th percentile travel times for the department are summarized in Figure 15. Fire and medical calls travel times have remained fairly consistent other than the dip in fire call travel time in 2010. Travel times for other calls have been on an increasing trend. In 2011 the 90th percentile travel time to fire calls was nine minutes, which is slightly higher compared to the best practices identified within the suppression performance targets (Appendix B) of 8 minutes, however, it is recognized that the size of Wilmot Township will result in longer travel distances to rural calls and therefore longer travel times. These longer travel times are primarily a result of the travel times required to reach the outlying rural areas within the Township.

Figure 15: 90th Percentile Travel Times (2007-2011)

Travel Times

90th Percentile Travel Time (seconds)

700

6.4

600 500

2007

400

2008 2009

300

2010

200

2011

100 0 Fire

Medical

Other

Call Type

Existing Fire Suppression Services

6.4.1 Current Staffing Recruitment and retention of volunteer firefighters continues to be a major challenge for fire departments across Ontario. Historically small towns and communities were reflected in their volunteer fire department. The volunteer departments were comprised of business owners and residents able to leave their employment or home and respond to the siren on the fire station for the call to duty.

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Fire Master Plan Township of Wilmot December 2012

Changes in employment conditions and individual priorities for work/life balance have negatively impacted recruitment and retention of volunteer firefighters across Ontario. The Township of Wilmot has experienced this; however, it continues to meet this challenge through proactive recruitment programs and sustaining many long serving volunteer firefighters.

In our view the recruitment within the New Dundee area is of the most concern. The District Chief at the New Dundee fire station has experienced some difficulties in recruiting new volunteer fire fighters for this station. This particular area has limited growth, and very limited possibilities to find potential volunteers working in the community who are able to leave their employment to assist in providing daytime coverage.

In our view the success of recruiting volunteer firefighters in the future will depend on the ability of the fire service to revise recruitment strategies including more aggressive marketing strategies such as media ads, and the use of social media tools and technology (e.g. Facebook and Twitter), which is utilized by the Township in other areas.

The immediate challenge for the Township of Wilmot is the recruitment of volunteer firefighters that would be available to provide weekly daytime (normal business hours) coverage. This should be considered a priority for the New Dundee station although all stations would benefit from a broader depth of resources available for this time period.

The current Council approved complement of volunteer firefighters for each of the three fire stations is 25. This represents a total combined complement of 75 volunteer firefighters within the department. Our analyses of the actual current complement of volunteer firefighters indicates that other than the New Dundee station the other stations are able to remain relatively close to their Council approved complement. There are however times when due to vacancies and scheduling of recruitment and training programs the other stations also operate below their Council approved complement.

In our view the current complement of 25 volunteer firefighters assigned to each fire station is at the low end of the optimal range for the effective operation of a volunteer fire station. Personal commitments and balancing work/life priorities with the desire to fulfill their role as volunteer firefighters is becoming a challenge for many volunteer firefighters. Optimizing the operational effectiveness of the Wilmot Fire Department relies on the volunteer firefighters responding and staffing multiple pieces of apparatus at each fire station. This is becoming an increasingly difficult challenge during weekly daytime hours (normal business hours) particularly at the New Dundee station.

Based on our analyses we are recommending that the Township of Wilmot consider an increase in the complement of 75 volunteer firefighters currently approved by Council. We are recommending an increase of 15 volunteer firefighters to achieve an overall complement of 90 volunteer firefighters.

This recommendation is targeted at achieving the following objectives: 1. Maintaining a minimum complement of 25 volunteer firefighters at all stations at all times; 2. Increasing the number of volunteer firefighters available during weekly daytime (normal business hours) time period at all stations; 3. This strategy would provide the flexibility to the fire department management team to manage the assignment of the volunteer firefighter complement proposed (90) as a whole rather than by the current (25) per station.

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Fire Master Plan Township of Wilmot December 2012

Figure 16: Average Depth of Response Staffing

Average (2007-2011) 90th Percentile Personnel On-scene 40

Average Personnel

35 30 2007

25

2008

20

2009

15

2010 2011

10 5 0 Fire

Medical

Other

Call Type

As shown in Figure 16, the overall depth of staffing response to fire calls is consistently greater than 15 In fact the 5-year average for 90th percentile personnel on-scene is 22. As referenced previously, the department has not been tracking either travel time or response time that it takes to achieve these levels of depth of response. For example, it is unknown at this time whether it is taking less than 10 minutes of travel time or greater than 10 minutes to assemble 14 firefighters on scene. As the first step to garnering a better understanding of the department’s performance in relation to best practices we recommend that the department initiate a process to track arrival time of all personnel on-scene.

6.5

Medical Calls

Based on our review of all emergency calls for the period 2007 to 2011 response to medical calls represented 50% of the responses. This percentage is consistent with the level of response by many other comparator fire departments across the province.

The department currently responds to medical calls as per a “Level A” tiered response agreement. Some departments modify these tiered response agreements to a “Modified A” agreement or “Level B” agreement to reduce the total call volume of the department. This may be a consideration in the future as the Township’s population ages and medical call volume increases, in order to sustain the volunteer firefighter model.

Excerpts from the current tiered response agreement are indicated below to provide an overview of the current level of fire department participation: A tiered response will be requested within one (1) minute of EMS dispatch, and in conjunction with the response reference chart, for the following emergency requests for service: 1. Respiratory Arrest (Absence of Breathing) 2. Cardiac Arrest (Absence of Pulse)

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Fire Master Plan Township of Wilmot December 2012

3. Unconsciousness 4. Motor Vehicle Collision with EMS attending A tiered response will be requested within one (1) minute of EMS dispatch, and in conjunction with the response reference chart, when the EMS response time is anticipated to be greater than twelve (12) minutes for the following emergency requests for service: 1. Acute Chest Pain and/or Shortness of Breath/Difficulty Breathing (not on calls originating from LTC, medical facility and/or other location with an available on-site EFR program or higher level of care) Profuse and Uncontrolled Bleeding (not including nose, vaginal, rectal or catheter site bleeds and no on calls originating from LTC, medical facility and/or other location with an available EFR program or higher level of care).

In our view the current â&#x20AC;&#x153;Level Aâ&#x20AC;? tiered response agreement is consistent with best practices of comparable municipalities. It represents a well-coordinated fire/ambulance medical response The Fire Chief is monitoring and reporting on the level of participation as a result of responding to medical calls identified within the current Tiered Response Agreement. This information is contained within the quarterly and annual summary reporting to Council. Considerations for revising the tiered response agreement may be a strategy in the future to maintain the departmentâ&#x20AC;&#x2122;s call volume at a level which can be sustained by the volunteer model.

6.6

Municipal Water System

Our review of the municipal water system included a high level assessment of where municipal hydrant protection is currently provided and where if necessary water supply would be required for firefighting through the use of water tankers.

6.6.1 Municipal Water System One area of concern was identified within the New Dundee settlement area that has existing municipal fire hydrants. Our analysis of data reflects that although the fire hydrants are in place they do not provide sufficient water flow for firefighting. Our research indicates that these fire hydrants were installed to provide for flushing of the local water system and not for firefighting. Our analysis further indicates that in the event of a fire and these fire hydrants were used there may be potential damage to local homes due to the capacity and capabilities of the fire pumping apparatus used. Our research also identified that a process to remove these fire hydrants was subsequently put on hold due to public feedback.

In our view these fire hydrants expose the Region of Waterloo and the Township of Wilmot to legal liability in representing a firefighting resource that is not actually available. Home owners in this area and their insurance companies may be unaware that this level of firefighting protection is not available. In the event of a fire in one of these homes there would be considerable investigation as to why the fire hydrants were present and not utilized by the fire department.

In our view the water flow and pressure capabilities including the effects on local homeowners should be fully reviewed, and where required these fire hydrants should be removed.

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Fire Master Plan Township of Wilmot December 2012

6.6.2 Tanker Shuttle Accreditation The Wilmot Fire Department currently has an effective water tanker shuttle procedure. Training is currently underway to test the department’s water shuttle capabilities against the requirements of the Insurance Underwriters Standard for “Superior Tanker Shuttle Accreditation”. Subject to completing and receiving certification of achieving this accreditation the Wilmot Fire Department will be able to provide written documentation to home owners affected. In our experience this can relate to a reduction in home ownership insurance premiums of 5% to 10% depending on the insurance provider.

In response to removing the fire hydrants in the New Dundee settlement area receiving accreditation in the ability to provide a “Superior Tanker Shuttle Accreditation” rating may provide home owners in this area with a decrease in insurance costs to offset the absence of fire hydrants in their area.

6.6.3 Emergency Response –Volunteer Firefighters In Ontario the Highway Traffic Act, 1990 (HTA, 1990) authorises volunteer firefighters to display a flashing green light on their personal vehicle while responding to an emergency. The Wilmot Fire Department supports the use of these flashing green lights as a strategy to improve turn-out times for volunteer firefighters responding to the fire station. PFSG 04-89-03 “Use of Flashing Green Lights in Personal Vehicles” reflects the purpose and operating guidelines for the use of these lights.

Public awareness and education with regard to the presence of volunteer firefighters and the use of the flashing green lights within their community is an important consideration. Many communities that adopt the use of these flashing green lights provide street signage to provide awareness to drivers of their presence.

We recommend that the Township support the installation of street signage reflecting the use of volunteer firefighter flashing green lights within the Township of Wilmot.

6.7

Fire Suppression Division Summary and Recommendations

For the period 2007 to 2011 the number of emergency calls that the department responded to remained relatively consistent. Responses to medical calls represented approximately 50% of these calls where actual fire related calls represented only 4%. This experience is quite consistent with that of other comparator municipalities.

The department has been achieving turnout times with an average of less than 4.5 minutes which also reflects a very good performance for volunteer firefighters. In 2011 the 90th percentile travel time to fire calls was 9 minutes which is slightly high compared to the best practices identified within the performance targets of 8 minutes. These longer travel times are primarily a result of the travel times required to reach the outlying rural areas within the Township.

Ongoing review of the fire department participation in responding to medical calls identified within the current Tiered Response Agreement should continue to be tracked and monitored. Considerations for revising the tiered response agreement may be a strategy in the future to maintain the department’s call volume at a level which can be sustained by the volunteer model.

As a result of our review and assessment of the Fire Suppression Division we recommend that: 1. A revised depth of response protocol to deploy a minimum of 14 firefighters based on moderate risk occupancies as defined by the Community Risk Profile be implemented.

2. A process to track arrival times of personnel on-scene be implemented to monitor depth of response performance and response time performance more accurately.

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Fire Master Plan Township of Wilmot December 2012

3. The complement of volunteer firefighters within the department be increased to 90 volunteer firefighters; an increase of 15 over the current Council approved complement of 75. This recommendation is targeted at achieving the following objectives: Maintaining a minimum complement of 25 volunteer firefighters at all stations at all times; Increasing the number of volunteer firefighters available during week-day daytime (normal business hours) periods at all stations; Providing the flexibility to the fire department management team to manage the assignment of the volunteer firefighter complement proposed (90) as a whole rather than by the current (25) per station. This could improve a situation such as the present conditions in New Dundee when the recruitment of volunteers for daytime coverage is challenging and there are opportunities to recruit volunteers at one of the other stations (available for daytime coverage), who could support the department and respond into daytime calls in New Dundee. In our view the overall complement of the department should be flexible to support this recruitment to more than 25 per station.

4. In consultation with the Region of Waterloo the existing fire hydrants in the New Dundee settlement area that cannot provide sufficient water flow and pressure for firefighting be removed.

5. Subject to completion of training the fire department should apply for and participate in the â&#x20AC;&#x153;Superior Tanker Shuttle Accreditationâ&#x20AC;? program offered by the Insurance Underwriters Association.

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Fire Master Plan Township of Wilmot December 2012

7.0 TRAINING DIVISION The Wilmot Fire Department currently provides ongoing training and retraining of all aspects of firefighting including live fire training, auto extrication, first aid, CPR and training new recruits. Training is conducted by staff at each fire station. There are occasional opportunities for inter-station training; however, the majority of training is conducted at each individual station. The department is also currently implementing the Fire Pro software program to document completed training.

Based on our experience and knowledge of the Ontario fire service, firefighter training is an area that has come under a high level of scrutiny over the past decade. The results of numerous inquests and investigations have concluded that firefighter training must be considered a strategic priority for municipalities in their role as employer and fire service leaders as supervisors. The Ministry of Labour has committed significant resources to audit and support this strategic priority.

Through our direct consultation with the volunteer firefighters, District Chiefs and the Fire Chief in preparing this FMP we confirmed the unanimous support of the desire to enhance training programs within the department. In our view this support for enhanced firefighter training is directly related to the goal of a single unified fire department as being the number one priority of the men and women serving this department.

7.1

Staffing and Training Sessions

Training sessions are currently assigned and delivered by various volunteers in the department, including the District Chief, the Senior Captain and the Captains. The majority of the training sessions are carried out in house. As indicated within the Fire Prevention/Public Education section of this plan we recommend the implementation of the position of Public Education/Training Officer to be established. This would be achieved initially, within the short-term horizon of this plan, through a contract position (21 hours per week). In our view this position should then transition to full-time over the short to mid-term horizons of this plan.

This new position would include specific job competencies and experience related to the development and delivery of training and public education programs within the fire service such as: A certificate in Adult Education from a College of Applied Arts and Technology. Individuals assigned as Training Officers are expected to have significant knowledge and skills in adult education theory in order to perform their roles; the community college certificate ensures achievement of the theory learning outcomes they need.

Successful completion of applied course credits offered by the Ontario Fire College. These course credits cover the practical or applied learning outcomes required by training officers including; o OFM Trainer/Facilitator Course o CO 101 Legislation/Standards or equivalent o CO 201 Leadership and Communication Theory or equivalent o CO 202 Practical Communications and Supervision or equivalent o OFC Applied Program Development course and Applied Program Delivery course or equivalents.

In our view the core competencies of a Training Officer reflect similar competencies to those that an individual delivering public education programming would be anticipated to have. A good example of this would be competency in adult education, particularly as one of the target groups for enhanced public education identified by the Community Risk Assessment is the seniors demographic within the community.

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Fire Master Plan Township of Wilmot December 2012

7.2

Training Programs

In partnership with the Ontario Association of Fire Chiefs, the Office of the Fire Marshal, Ontario has developed training standards for firefighters and Company Officers. Each of these standards has an extensive curriculum including the theoretical and practical components of the primary functions and roles and responsibilities of these positions.

Addressing an employer’s responsibilities as defined by the Occupational Health and Safety Act and specifically the Section 21 Guidance Notes for Firefighters is another mandatory component of a comprehensive annual training program.

In our view, in addition to responding to the relevant standards, curriculum and health and safety requirements, a comprehensive annual training program should include the following core functions: Identification of training needs in relation to services provided; Coordination / scheduling of theoretical and practical training; Monitoring and evaluation in relation to outcomes achieved; Ongoing evaluation in relation to best practices and legislative requirements; Oversight of program objectives and records management; and Ongoing assessment of program delivery for efficiency and effectiveness.

Developing and sustaining an annual training program that includes all of the core functions and addresses the health and safety responsibilities of the municipality is consistent with the strategic priority that fire services across Ontario are initiating. Implementing this strategy is also consistent with our consultation with members of the department that this must be considered a major priority.

7.3

Specialty Training Programs

In addition to basic firefighting training the department must also consider the training needs associated with specialized services. Specialized services (e.g. technical rescues) are the types of services that typically require a higher level of technical training and equipment to safely mitigate the emergency.

Our review identified that the following specialized services are currently being provided: Medical Responses (as per Tiered Response Agreement); Auto Extrication (including scene stabilization, heavy hydraulic tools, air bags); Ice / Water Rescue (including “Shore-Based” rescue); Hazardous Materials Response (including “Awareness Level” response); and Rope/High Angle Rescue (including low angle rescue only, “Awareness Level” for confined space).

Based on our review of historical calls for service and the Community Risk Profile we are recommending that consideration be given to expanding the following specialized service: Ice/Water Rescue (to include “Water-Based Rescue”)

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Fire Master Plan Township of Wilmot December 2012

Expanding this service would respond to rescue situations that may require the entry of a firefighter into the water to conduct a rescue. Expanding to â&#x20AC;&#x153;Water-Based Rescueâ&#x20AC;? will require additional training and the purchase of some additional equipment. Based on our review there is sufficient risk within the community related to the presence of standing and moving water for Council to consider providing this service.

The current fire department Establishing and Regulating By-Law 2011-15 does not include specific reference to specialized services or technical rescues. In our view the by-law should be revised to reflect the level of services in these areas approved by Council.

Subject to Council approval of these service levels the comprehensive training program will be revised to reflect the provision of these service levels and the specialized training programs for volunteer firefighters to be competent and certified to respond to these specialized incidents. In our view this is an excellent example of area of the current department training program that will benefit significantly from providing a dedicated staff resource.

7.3.1 Live Fire Training The purpose of live fire training provides realistic fire training simulations under safe and controlled conditions. With relatively low volumes of fire calls it is important that the department provides access to suppression staff to simulate safe and effective fire suppression operations in an appropriate training facility. Live fire training facilities can provide simulated heat, humidity, restricted vision and smoke conditions.

The Wilmot Fire Department has a unique opportunity for participating in live fire training scenarios at the Waterloo Region Emergency Services Training and Research Facility (WRESTRC). This centre provides access to a state of the industry training facility.

Live fire training is currently provided by the department primarily focused on new firefighter recruitment. Regular access to live fire training on a scheduled basis is not included within the current training program. Utilizing the WRESTRC facility or other firefighter training centre we recommend that the new comprehensive annual training program include scheduled participation by all volunteer firefighters in live fire training exercises at a minimum on an annual basis.

7.4

Succession Planning

The department does not currently have a formal succession plan. Succession plans can provide a framework of skills and experience that are required for each position within the department. For candidates seeking promotion or further responsibilities the succession plan can provide a career path to the position of their choosing.

Succession planning can also provide the CAO and Council with the knowledge that there are trained and skilled candidates available in the event vacancies occur within the department. In our view the proposed recommendation to appoint an Acting Fire Chief supports succession planning within the department.

Where possible other initiatives such as this should be considered.

7.4.1 Promotional/Recruitment Process The current promotional process begins with applications being received for the posted position.

Candidates are then interviewed and a decision is made by existing officer staff. The Fire Chief is consulted as required. A promotion to District Chief would be made by the Fire Chief in consultation with the CAO.

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Fire Master Plan Township of Wilmot December 2012

The department promotional process and volunteer recruitment process are two areas where the department would benefit from the assistance of the Township human resource representative. Human resource staff with the specific skills and experience in human resource management are highly trained in areas such as recruitment and promotion and can, in our experience, be a very good resource to managing these types of processes.

Human resource professionals stay current in other forms of legislation such as human rights and hiring practices. The fire department would benefit from having this experience and skills involved more often in the human resource management functions of the fire department.

7.4.2 Company Officer Training In 1988, ‘Paradigm for Progress,’ a Task Force Report to the Ontario Association of Fire Chiefs, recommended that the Professional Standards Setting Body (PSSB) be created with the mandate to develop a training, educational and certification system for the Ontario Fire Service.

The PSSB, under the auspices of the Ontario Association of Fire Chiefs (OAFC) and the Office of the Fire Marshal (OFM,) has developed and published nine Ontario Fire Services Standards. One of these is the Company Officer Standard.

The Wilmot Fire Department has been moving towards the utilization of this standard and the curriculum that is available to achieve recognition as a certified Company Officer. The department currently has two qualified trainer facilitators to facilitate this training and certification process.

We recommend the department formalize company officer training as part of the annual training program.

7.4.3 Training Remuneration The Township currently budgets and compensates the volunteer firefighters for attending training sessions. This FMP recommends developing a new comprehensive annual training schedule that will increase the number of joint training sessions including more than one station, and increase the amount of training required in areas such as Water/Ice rescue.

In our view participation in the comprehensive annual training schedule will result in an increased number of hours of attendance by each of the volunteer firefighters. We recommend that the Township begin to phase in an increase in the annual funding for volunteer training beginning in 2013 to accommodate the additional hours of training by the volunteer firefighters.

7.5

Facilities & Workspace

Theoretical training (classroom) is currently being conducted at each fire station. Each fire station has sufficient space to accommodate this type of training. Small equipment training exercises are also conducted in the apparatus bays or outdoors as necessary.

As indicated within this report further use of the WRESTRC training centre to support the annual training program is recommended. The WRESTRC training centre provides the department access to many of the larger training “props” and space specifically designed for these larger exercises and a larger number of participants such as a two station coordinated training session.

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Fire Master Plan Township of Wilmot December 2012

7.6

Training Division Summary and Recommendations

Developing a comprehensive annual training program for the department has been identified by the volunteer firefighters, District Chiefs and the Fire Chief as a major priority. Many of the challenges the current training program is facing can be attributed to the absence of a single point of contact and coordination of training activities across the department. These factors in addition to the absence of dedicated staff resources available to develop, deliver and monitor a comprehensive annual training schedule are challenging the department to sustain an effective training program.

The department has also prioritized its desire to become one unified composite department. In our view this is an appropriate and achievable objective. Developing and implementing a comprehensive annual training schedule will assist in achieving this objective.

Ensuring the department is achieving and sustaining its legislative responsibilities as an employer, particularly in response to increasing health and safety concerns for all firefighters is an important role of a training division and training officer. The Fire Chief and District Chiefs have done well to sustain a level of training within the department that reflects many of the best practices across the province in volunteer and composite departments. Managing the training program and tracking of the required documentation in addition to remaining current on evolving trends and practise is challenging the sustainability of the current training program.

In our view implementation of the proposed position of Public Education/Training Officer will provide the department with the dedicated staff resource to achieve the major priority identified by the department.

As a result of our review and assessment of the Training Division we recommend that: 1. The Township of Wilmot Fire Department endorse the Ontario Firefighters Standard and Company Officer Standard as the core curriculum for firefighter training within the Township of Wilmot Fire Department; 2. A comprehensive annual training program be developed including specialized training based on the service levels approved by Council for specialized emergency responses.

3. The position of Training Officer/Public Education Officer be implemented as part of the new organizational structure for the Township of Wilmot Fire Department including the phased implementation plan identified within the Fire Master Plan.

4. The Township begin to phase in an increase in the annual funding for volunteer training beginning in 2013 to accommodate the additional hours of training by the volunteer firefighters.

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Fire Master Plan Township of Wilmot December 2012

8.0 FIRE STATIONS, APPARATUS & EQUIPMENT 8.1

Fire Stations

The Wilmot Fire Department currently operates from three existing fire stations as follows: Station 1 – Baden Station is approximately 40 years old. For its age, the station is in reasonable to good overall condition, but would benefit from some infrastructure improvements such as upgrading the washrooms and kitchen areas. These challenges should be considered within an overall, detailed review of the department’s facility needs within the coming year. The existing apparatus room is functional; however it is small by current fire station design standards. An expansion of this area would improve access to equipment in the apparatus for training, inspection and maintenance purposes.

In partnership with the Region an ambulance also currently operates from this station. There are discussions underway that may see the relocation of the ambulance to another site. This would provide a unique opportunity to expand the fire station space and provide a number of improvements such as more space for apparatus.

Station 2 – New Dundee station was built in 1990. To maximize the small land area the building was constructed two stories high. The kitchen, training rooms and offices are located on the upper floor. The existing apparatus room provides adequate access to equipment in the apparatus for training, inspection and maintenance purposes.

Station 3 – New Hamburg was built in 1969 and is the smallest of the three stations. Space is limited in the apparatus room creating challenges to access equipment for training, inspection and maintenance purposes without having to take vehicles out of the station. The women’s washroom facilities are not ideally located, as they are in a part of the building separated from the fire station by locked doors.

Parking at this station is also limited, which is an issue for volunteer firefighters responding to this station. These issues should be considered within a focused review of the department’s facility needs.

The New Hamburg fire station is located within a recognised flood plain area. Our research indicates that on at least one occasion water has entered the building during a flood event. In events such as this a large portion of the downtown area would most likely also be under water.

In our view the current station location reflects the optimal location for providing emergency response to the community as well as access for the volunteer firefighters assigned to this station.

In our view the fire department should develop an emergency contingency plan for relocating the apparatus and equipment from this station to another temporary location within the New Hamburg station primary response area that is outside of the identified flood plain. The temporary site should include access to amenities, such as washrooms, kitchen and space to support the volunteer firefighters should they be required to stand-by at the temporary location for an extended period of time.

The current fire station locations reflect good access for emergency response to the communities they protect and access for the volunteer firefighters assigned to the stations. The Baden and New Hamburg stations are the two oldest stations and are in need of renewal and infrastructure improvements.

Opportunities such as the relocation of the ambulance from the Baden station may provide opportunities for the department in the future.

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Fire Master Plan Township of Wilmot December 2012

In our view there are recognized challenges with existing space allocation and facility condition. It is identified that, although no critical issues exist at the present time, infrastructure improvements should be reviewed and implemented in a timely manner, especially with regards to the two older station facilities.

We recommend that the municipality conduct a detailed facility review within the short-term horizon of the FMP to ascertain the overall current infrastructure condition and space needs for the fire department.

In our opinion this type of review would provide the municipality with a detailed framework (including prioritization and capital budget requirements) to address the fire departmentâ&#x20AC;&#x2122;s facility needs. Taking a strategic approach to facility maintenance and improvement will assist the Township in avoiding or managing costly repairs or time sensitive needs which may be requires if infrastructure begins to degrade or worst case, fail.

Table 9 provides an overview of the fire station, apparatus, and fire suppression staffing within the Wilmot Fire Department.

Table 9: Current Stations, Apparatus & Minimum Staffing Station

Station Address

Apparatus

Available Fire Suppression Staffing

2 Pumpers Baden

99 Foundry St.

1 Tanker

Volunteers

1 Rescue 1 Pumper New Dundee

55 Front St.

1 Tanker

Volunteers

1 Rescue 1 Pumper New Hamburg

121 Huron St.

1 Quint 1 Tanker

Volunteers

1 Rescue

8.2

Diesel Emissions

The Ontario Fire Service has identified health and safety concerns related to diesel exhaust emissions from apparatus stored within a fire station. In response the Ministry of Labour, Section 21 Guidance Note #3-1 was developed to assist municipalities in responding to these concerns raised.

This guidance note includes a number of actions that should be taken to limit the exposure of the diesel emissions. The following is an excerpt from Guidance Note #3-1 that states: â&#x20AC;&#x153;The Section 21 Committee strongly recommends the installation of direct capture type exhaust system extractors when stations are being renovated or newly constructed. Consideration should be given to having direct capture type exhaust extractors installed in all existing fire stationsâ&#x20AC;?.

The fire stations of the Wilmot Fire Department currently do not have provisions for the direct capture system recommended. The Township and the fire department should consider full implementation of the actions identified to limit the exposure of diesel emissions as an interim measure and include a detailed analysis of these systems as part of the proposed detailed facility review recommended.

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Fire Master Plan Township of Wilmot December 2012

8.3

Apparatus and Equipment

Overall, the apparatus and equipment within the department are generally in good condition. The fleet is relatively young, with two thirds being less than 10 years old. There are a Pumper and a Tanker that are both over 15 years old and are due for replacement in the next few years, in accordance with the Townshipâ&#x20AC;&#x2122;s 10-year capital replacement plan. The fleet is also well dispersed amongst the three fire stations and provides efficient suppression services throughout the Township.

8.3.1 Staffing and Responsibilities It is the responsibility of the District Chief at each station to arrange for vehicle and equipment maintenance by advising the Fire Chief if repairs are necessary or by arranging for vehicles to be taken for annual MTO checks, pump tests, etc.

Equipment is checked by station personnel on a monthly basis or after alarms. Repairs and regular maintenance are carried out as necessary. Truck bays or tables in the training room are generally used for maintenance activities. Some repair and maintenance is done in house by mechanics that have the time and ability to complete the work. In other cases, the apparatus are taken to an outside provider. Subject to the extent of repairs required apparatus can be out of service for extended periods.

8.3.2 Apparatus & Fleet Table 10 below reflects the current apparatus used by the department.

Table 10: Apparatus and Model Year Apparatus Reserve Pumper

Station

Unit #

Make/Model

Year

Baden

P2

Freightliner/Superior

1996

Pumper

New Hamburg

P31

Freightliner/Lafrance

1999

Pumper

Baden

P1

Freightliner/Rosenbauer

2006

Pumper

New Dundee

P21

International/Crimson

2010

Tanker

New Hamburg

T35

Ford/C-Max

1995

Tanker

New Dundee

T25

Freightliner/Dependable

2003

Tanker

Baden

T5

Freightliner/Dependable

2007

Rescue

Baden

R7

Freightliner/Dependable

2004

Rescue

New Hamburg

R37

Freightliner/Dependable

2005

Rescue

New Dundee

R27

Freightliner/Dependable

2009

Aerial

New Hamburg

A39

Spartan/LTI

2000

Pickup

Headquarters

500

Ford F-150

2010

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Fire Master Plan Township of Wilmot December 2012

Each station is equipped with a Pumper, a Tanker, and a Rescue apparatus. The departmentâ&#x20AC;&#x2122;s aerial apparatus is located at the New Hamburg station. All apparatus are relatively new other than Tanker (T35) in New Hamburg and Pumper (P31) in Baden. These apparatus identified within the capital replacement budget and are scheduled for replacement in 2013 and 2015, respectively. The Township currently has Pumper (2) located at the Baden station that is used as a reserve apparatus when one of the primary apparatus is out of service for repairs or maintenance.

The schedule replacement of Tanker (35) in 2013 provides the opportunity to consider a strategy to begin purchasing larger (2,500 gallon) tankers. This strategy supports the departments desire to achieve the Superior Tanker Shuttle Accreditation and increase the volume of water the department is able to shuttle to a rural fire scene. We support this strategy. The department is also planning to retain the current Tanker (35) as a reserve apparatus that would be utilized in the event of one of the primary response tankers is out of service for repair or maintenance. We also support this strategy as part of preparing for the Superior Tanker Shuttle Accreditation process.

We further recommend the replacement of Tanker (25) within the mid-term horizon of this FMP with the larger (2,500 gallon) tanker standard the department is striving to achieve. This strategy would then allow Tanker (35) which would be in reserve status to be replaced and provide the department with an effective apparatus tanker fleet to support sustaining the Superior Tanker Shuttle Accreditation.

When replaced in 2015 Pumper (31) will be reassigned as the reserve pumper and replace Pumper (2) which will then have reached its full life cycle expectancy and be removed from service.

The department has planned for an additional pumper in 2019 to add to depth of apparatus within the department. Based on our analyses of growth we believe this is an appropriate plan and should be sustained within the long-term horizon of this FMP. In our view the department has done very well in standardizing the apparatus and equipment under the leadership of the Fire Chief and the District Chiefs. Informally the District Chiefs have sought the input of the volunteers at each station into the type of apparatus and equipment to be purchased. In our view continuing this strategy and including the input of the volunteers into the purchasing of apparatus and equipment will support the desire of developing one unified composite fire department.

8.4

Maintenance

8.4.1 Apparatus Maintenance Apparatus requiring Ministry of Transportation, Ontario (MTO) certificates have scheduled maintenance throughout the year. This is incorporated into the schedule and work load of the Townshipâ&#x20AC;&#x2122;s public works mechanic. Preventative maintenance occurs at the time of certification and six months after. The department strives to complete the final service by November to ensure vehicles are ready for winter operating conditions.

All vehicles which do not require MTO certification follow a 5,000 kilometre preventative maintenance program. This maintenance is generally completed by local private mechanics. Specialized repairs are completed by local dealerships specializing in specific equipment.

Apparatus break-downs are sent immediately for repair by the applicable private repair facility, as dictated by availability and type of repair.

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Fire Master Plan Township of Wilmot December 2012

8.5

Equipment

Where life cycles and condition warrant equipment replacement coincides with the apparatus capital replacement plan (portable pumps, generators, etc.). The department also budgets for equipment replacement within the annual operating budget for smaller equipment replacement.

Personal protective equipment such as firefighters bunker gear is replaced based on a 10-year life cycle that targets an annual replacement strategy of six to ten sets per year. Life cycle planning is utilized where possible for other equipment replacement subject to some equipment that may have significant wear and tear as a result of higher than anticipated use through training or emergency response. In these situations the department attempts to complete replacement as soon as possible, but may be required to identify specific operating budget funding for replacement.

Self-contained breathing apparatus (SCBA) are another example of the departmentâ&#x20AC;&#x2122;s use of life cycle planning and budgeting for replacement. SCBA bench tests are carried out at least once every two years or at the time of any service if any deficiencies are noted. A number of volunteer firefighters have field level maintenance training to allow them to do minor repairs on site. The SCBA air cylinders are also checked regularly for compliance with hydrostatic testing and tested as required.

As indicated within the apparatus section of the report the department has done very well in standardizing the apparatus and equipment under the leadership of the Fire Chief and the District Chiefs. Historically the volunteer firefighters associations at each of the volunteer stations have assisted in funding the purchase of equipment such as extrication equipment. This practice is common across the province in volunteer fire departments and reflects the commitment of volunteer firefighters to community public safety. However, this practice can be detrimental to the goal of equipment standardization across the broader department.

In our view continuing to include the input of the volunteers into the purchasing of apparatus and equipment and optimizing the operating budget funding available will support the desire of developing one unified composite fire department.

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Fire Master Plan Township of Wilmot December 2012

8.6

Fleet Replacement Plan

Our review of apparatus replacement and major equipment replacement plans for municipalities with similar types of use and wear reflect a best practice strategy of 15 years of service as front-line apparatus and a further five years of service in a reserve capacity reflecting a 20 year overall life cycle for major apparatus such as pumpers and tankers.

Table 11 summarizes the dates associated with existing apparatus replacement.

Table 11: Fleet Replacement Plan Replacement Year 2015 (remove from service)

Apparatus

Unit #

Make/Model

Year

Reserve Pumper

P2

Freightliner/Superior

1996

Pumper

P31

Freightliner/Lafrance

1999

2015

Pumper

P1

Freightliner/Rosenbauer

2006

2020

Pumper

P21

International/Crimson

2010

2025

Tanker

T35

Ford/C-Max

1995

2013

Tanker

T25

Freightliner/Dependable

2003

2023

Tanker

T5

Freightliner/Dependable

2007

2022

Rescue

R7

Freightliner/Dependable

2004

2024

Rescue

R37

Freightliner/Dependable

2005

2025

Rescue

R27

Freightliner/Dependable

2009

2029

Aerial

A39

Spartan/LTI

2000

2020

Pickup

500

Ford F-150

2010

2020

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Fire Master Plan Township of Wilmot December 2012

8.7

Fire Station, Apparatus, & Equipment Summary and Recommendations

Based on our visual assessment the existing fire stations in Baden and New Hamburg are reaching their life expectancy and would benefit from infrastructure renewal. The fire station in New Dundee is much newer and reflects a relatively modern fire station with the appropriate amenities and space to accommodate the assigned apparatus and volunteer firefighters. The department apparatus and equipment appear to be in good repair and reflect the current operational needs of the department.

Consideration should be given to conducting a detailed facility review to assess the current infrastructure and space allocation needs specifically at the Baden and New Hamburg stations. The current apparatus replacement strategy including the purchase of a larger tanker in 2013 and the reallocation of apparatus to maintain reserve apparatus reflects a progressive approach to apparatus replacement management.

As a result of our review of Wilmotâ&#x20AC;&#x2122;s fire stations, apparatus & equipment we recommend that: 1. The municipality conduct a detailed facility review in the short term horizon to ascertain the overall current infrastructure condition and space needs for the fire department, most specifically the Baden and New Hamburg Fire Stations.

2. The the apparatus replacement plan including the purchase of a 2,500 gallon tanker in 2013 and reallocation of current apparatus to sustain a complement of reserve apparatus including a pumper and a tanker be approved.

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Fire Master Plan Township of Wilmot December 2012

9.0 COMMUNICATIONS & TECHNOLOGY Communications within the Township’s Fire Department consists of dispatch procedures and equipment for rescue operations as well as internal communication between the members of the department.

9.1

Fire Dispatch

The Township of Wilmot currently contracts emergency call taking and fire dispatching through an agreement with the Kitchener Fire Department. Kitchener is also responsible for activating the paging system to alert volunteer firefighters to respond. Both departments operate on the regional 800 MHz trunked radio system. The trunked radio system provides the operational flexibility to operate through numerous “talk groups” or virtual channels so that the users can conduct several operations at one time without impact each other. This is particularly valuable in large incidents or when automatic aid is requested and multiple departments are operating on one emergency scene.

The current agreement with the Kitchener Fire Department was renewed on January 1st, 2012 and will be in place until December 31st, 2016. The agreement details a fee procedure and the provision of infrastructure and operations activities by the Kitchener Fire Department. Performance criteria are also included.

The current agreement with Kitchener for call taking and fire dispatch reflects best practices and an effective strategy for the Wilmot Fire Department in providing these services.

There are some additional technologies such as Automatic Vehicle Locators (AVL) that would further benefit the overall operations of the Wilmot Fire Department. GPS (Global Positioning System) units were recently installed on all Township vehicles, including all fire apparatus. These are not currently linked to the dispatch CAD system. The department in conjunction with other regional municipalities are investigating how to link these technologies to benefit from the AVL performance. Options for considering the use of these technologies should be discussed with Kitchener and considered as part of renewing this agreement.

9.2

Internal Department Communications

Internal communications within the department was identified as a concern during the volunteer stakeholder consultations. This is not surprising of a fire department with fire stations that are located to cover such a large geographic area. The volunteer stakeholders identified that internal communications are working well at station level, but would benefit from more interaction and communication at the departmental level.

In our view the discussions regarding internal communication align with the department’s clear objective to become one unified composite department. The volunteer stakeholder consultations were very positive sessions that in our experience represent an expression of a desire to be informed, be involved, and ultimately help towards achieving the goals and objectives of the department.

In our experience there are numerous strategies that could be considered to enhance communications within the department. As proposed within this plan the formalization of the department management team including the Fire Chief and District Chiefs would provide the platform for initiating enhanced communication and interaction across the department.

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Fire Master Plan Township of Wilmot December 2012

9.3

Communications and Technology Summary and Recommendations

The current dispatch agreement with the Kitchener Fire Department is working well and meeting the needs of the Wilmot fire Department. Investigation of new and evolving technologies will be investigated as part of the regional review of emergency services dispatching and consideration of the renewal of the current agreement with Kitchener.

Internal department communications would benefit from introduction of strategies to inform the volunteer firefighters, and where possible, seek their input into the operation of the department.

As a result of our review and assessment of communications and technology we recommend that: 1. The department management team identifies and implements strategies to enhance the communication and interaction across the department.

2. Within the review of emergency services dispatching within the region and review of the current dispatch agreement with the City of Kitchener opportunities to enhance the use of technology such as linking GPS technology installed on the apparatus with the dispatch CAD system to provide AVL information.

9.0 Communications & Technology Page - 68

Fire Master Plan Township of Wilmot December 2012

10.0 STUDY CONSULTATION The process of developing a Fire Master Plan for the Township of Wilmot involved various consultation activities. Effective communication and consultation with stakeholders and the community is essential to ensure that those responsible for implementing this Fire Master Plan, and those with a vested interest, understand the basis on which certain decisions are made and why particular actions are required.

10.1 Steering Committee The Steering Committee was comprised of the following members, including Township staff and Council members: Fire Chief Chief Administrative Officer (CAO) Director of Finance & Treasurer Human Resources representatives[ Fire Prevention Officer Three District Chiefs One Council Representative

10.2 Project Meetings Throughout this study, the Dillon team met with the Steering Committee to keep them abreast of study progress. The following meetings took place: Project Meeting #1 Project Initiation – May 28, 2012 Project Meeting #2 Preliminary Findings & Recommendations – August 14, 2012 Project Meeting#3 Present Draft Report – November 29, 2012 Project Meeting#4 Present Final Report to Council – Planned for January 14, 2013

10.3 Stakeholder Consultation Stakeholders can provide valuable input at each step of the process, providing information about context and background from different perspectives. This helps to identify issues and needs associated with the fire and emergency service. As well it provides information that is used for study analysis and recommendation phases. Engaging stakeholders helps ensure that multiple perspectives can be brought to the fire master planning process.

10.3.1 Interviews with Steering Committee Members Information and feedback was collected from members of the Project Steering Committee and key stakeholders via informal interviews held following the Project Initiation Meeting. This was an opportunity to gather background information for the environmental scan and input on strengths, opportunities, challenges and threats from the point of view of these key stakeholders. This was an essential stage in developing strategic goals and objectives for the fire master planning process.

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Fire Master Plan Township of Wilmot December 2012

10.3.2 Interview with District Chiefs One-on-one interviews were held with the three District Fire Chiefs during the station tours. Collecting information from staff interviews is a key component of the data collection process and is also essential to gaining feedback regarding the strengths, weaknesses, opportunities and challenges with the Wilmot Fire Department.

10.3.3 Volunteer Firefighter Roundtable Sessions Stakeholder sessions were held at each of the three fire stations that comprise the Wilmot Fire Department. Sessions were held at Baden Station and New Hamburg Station on Monday, May 28th, 2012.

A session was held at New Dundee on Monday, June 4th, 2012.

A presentation was delivered to stakeholder group to introduce the master fire planning process. This was followed by open discussion to gather feedback from these key stakeholders regarding the strengths, weaknesses, opportunities and challenges of the fire department for consideration in the Fire Master Plan.

10.3.4 Project Update for Volunteer Firefighters Following the August 12th, 2012 Steering Committee Meeting, the Consultant Study Team prepared a written one-page summary of the meeting purpose, meeting objectives, key study observations presented

by Dillon and next steps in the study process. This notice was distributed by the Township to the volunteer firefighters.

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Fire Master Plan Township of Wilmot December 2012

11.0 IMPLEMENTATION PLAN The recommendations of this Fire Master Plan support the goal of creating a single unified fire department. Many of the recommendations require no additional financial commitment. For those recommendations requiring further financial support by Council the following implementation plan has been developed to provide a high level overview of the potential cost impacts of the recommendations.

The operating and capital costs identified reflect cost estimates based our experience.

Our recommendation subject to Councilâ&#x20AC;&#x2122;s approval of this Fire Master Plan is to request the Fire Chief to provide a detailed financial implementation plan utilizing the information provided below in Table 12.

Table 12: Implementation Plan Approximate Funding Required Horizon

Description

1.

2.

3.

4.

Shortterm 2013 to 2015

5.

6.

7.

8.

9.

Operating

Capital

Budget

Budget

Implement the position of Public Education/Training Officer (21 hours per week)

$40,000

Increase complement of Volunteer Firefighters by 15 @ $6,000 base pay per firefighter.

$90,000

Additional training hours for increased complement of 15 firefighters @ $2,500 training pay per firefighter..

$37,500

New Volunteer Firefighter bunker gear for increased complement of 15 firefighters @ $3,500 per firefighter.

$45,000

Complete detailed Facility Review of the fire stations.

$25,000

Install flashing green light street signage at strategic locations within the Township.

$1,000

Purchase new Tanker with 2500 gallon capacity to replace current Tanker (35)

$260,000

Investigation and removal of fire hydrants in the New Dundee settlement area. Cost would be incurred by another department.

Application for Superior Tanker Shuttle Accreditation.

10. Purchase new Pumper to replace Pumper (31)

11.0: Implementation Plan Page - 71

TBD.

$5,000 $360,000

Fire Master Plan Township of Wilmot December 2012 Approximate Funding Required Horizon

Description

11. Increase the available hours for the Fire Prevention Officer to reflect full-time position.

Midterm 2016 to 2018

12. Increase available hours of Public Education/Training Officer to reflect full-time position.

Operating

Capital

Budget

Budget

$30,000

$30,000

13. Purchase new Tanker with 2500 gallon capacity to replace current Tanker (25) Longterm 2019 to 2023

Legend:

14. Expansion of the New Hamburg fire station 15. Purchase an additional Pumper to increase the depth of apparatus fleet.

Approximate funding required as a result of Fire Master Plan recommendations Included in existing Capital Budget Plans

11.0: Implementation Plan Page - 72

$260,000 $450,000 $400,000

Fire Master Plan Township of Wilmot December 2012

APPENDIX A Detailed Community Risk Assessment

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table of Contents Page A1.0

DETAILED COMMUNITY RISK ASSESSMENT ................................................................. 1 A1.1 Introduction.................................................................................................................... 1 A1.2 OFM Fire Risk Sub-Model ............................................................................................. 1 A1.3 Assessing Fire Risk Scenarios ........................................................................................ 2 A1.4 Property Stock ................................................................................................................ 2 A1.4.1 Community Risk Profile – Major Occupancy Classifications .............................. 3 A1.4.2 Assembly Occupancies (Group A) ..................................................................... 3 A1.4.3 Care and Detention Occupancies (Group B) ....................................................... 4 A1.4.4 Residential Occupancies (Group C).................................................................... 4 A1.4.5 Business and Personal Services Occupancies (Group D)..................................... 5 A1.4.6 Mercantile Occupancies (Group E) .................................................................... 5 A1.4.7 High/Medium/Low Hazard Industrial Occupancies (Group F) ............................ 6 A1.4.8 Other Occupancies/Uses not listed within the OBC (Not Classified) ................... 6 A1.4.9 Property Stock Analysis ..................................................................................... 7 A1.4.10Property Stock Profile Observations ................................................................... 7

A2.0

BUILDING HEIGHT AND AREA ........................................................................................... 9 A2.1 Building Height .............................................................................................................. 9 A2.2 Building Area ................................................................................................................. 9 A2.2.1 Building Height and Area Observations ........................................................... 10 A2.3 Building Age and Construction ..................................................................................... 10 A2.3.1 Building/Fire Code Application ....................................................................... 10 A2.3.2 Residential Buildings ....................................................................................... 11 A2.3.3 Non-Residential Buildings ............................................................................... 12 A2.3.4 Building Age and Construction Observations ................................................... 12 A2.4 Building Exposures ...................................................................................................... 13 A2.4.1 Building Exposures Observations ..................................................................... 13

A3.0

DEMOGRAPHIC PROFILE .................................................................................................. 14 A3.1 Population Distribution by Age Group .......................................................................... 14 A3.2 Population Shifts .......................................................................................................... 16 A3.3 Vulnerable Individuals or Occupancies ......................................................................... 16 A3.4 Language Barriers to Public Education ......................................................................... 17 A3.5 Income Levels .............................................................................................................. 17 A3.6 Demographic Profile Observations ............................................................................... 18

A4.0

GEOGRAPHY / TOPOGRAPHY / ROAD INFRASTRUCTURE ....................................... 19 A4.1 Geography/Topography/Road Infrastructure Profile Observations................................. 22 A4.2 Past Fire Loss Statistics ................................................................................................ 23 A4.2.1 Fire Loss by Occupancy Classification ............................................................. 23 A4.2.2 Reported Fire Cause......................................................................................... 24 A4.2.3 Reported Ignition Source ................................................................................. 25 A4.2.4 Reported Civilian Injuries and Fatalities ........................................................... 25 A4.3 Past Fire Loss Profile Observations .............................................................................. 26 A4.4 Fuel Load Profile.......................................................................................................... 26 A4.4.1 Fuel Load Profile Observations ........................................................................ 27

Detailed Community Risk Assessment Page – A-i

Township of Wilmot Fire Master Plan - Appendix A December 2012

A5.0

COMMUNITY GROWTH & DEVELOPMENT ................................................................... 28 A5.1 Historic Growth............................................................................................................ 28 A5.2 Growth Projections ....................................................................................................... 28 A5.3 Growth Projections Profile Observations ...................................................................... 29

A6.0

RISK PROFILE MODEL ....................................................................................................... 31 A6.1 Probability Levels ........................................................................................................ 31 A6.2 Consequence Levels ..................................................................................................... 32 A6.3 Risk Levels .................................................................................................................. 33 A6.4 Ontario Fire Code Compliance ..................................................................................... 34 A6.5 Township of Wilmot Risk Evaluation ........................................................................... 35 A6.6 Township Of Wilmot Risk Model ................................................................................. 38 A6.6.1 Methodology ................................................................................................... 38 A6.6.2 Existing Risk and Response (Call Locations) ................................................... 39 A6.6.3 Existing Risk and Response (Township Geography) ......................................... 39

List of Figures Figure 1: Township of Wilmot Official Plan Land Use Map ................................................................. 20 Figure 2: Township of Wilmot Official Plan Environmentally Constrained Lands ................................. 21 Figure 3: Township of Wilmot Official Plan Transportation.................................................................. 22 Figure 4: Industrial Development Lands ............................................................................................... 30 Figure 5: Existing Risk and Response Call Locations ............................................................................ 40 Figure 6: Existing Risk and Response (Geography)............................................................................... 41

List of Tables Table 1: OBC Major Occupancy Classification ........................................................................................ 3 Table 2: Property Stock Profile Township of Wilmot ............................................................................... 7 Table 3: Residential Structural Dwelling Type ....................................................................................... 11 Table 4: Age of Construction ................................................................................................................. 12 Table 5: Age Group ............................................................................................................................... 14 Table 6: Provincial % of Fire Fatalities by Age Group ........................................................................... 15 Table 7: Retirement Homes and Communities in Wilmot ....................................................................... 17 Table 8: Mother Tongue of Wilmot Residents........................................................................................ 17 Table 9: 2006 Statistics Canada Household Data.................................................................................... 18 Table 10: Provincial Fire Loss by Occupancy Classification .................................................................. 23 Table 11: Township of Wilmot Fire Loss by Property Classification ...................................................... 24 Table 12: Township of Wilmot 2006 to 2010 Reported Fire Cause......................................................... 24 Table 13: Township of Wilmot ............................................................................................................. 25

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-ii

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 14: Township of Wilmot ............................................................................................................. 26 Table 15: Historic Growth in Population and Households ...................................................................... 28 Table 16: Population and Employment Growth Projections.................................................................... 29 Table 17: OFM Fire Risk Sub-model Likelihood Levels (Probability) .................................................... 32 Table 18: OFM Fire Risk Sub-model Consequence Levels .................................................................... 33 Table 19: OFM Fire Risk Sub-model Risk Levels ................................................................................. 34 Table 20: Risk Evaluation Summary ..................................................................................................... 37 Table 21: Base Risk Zone Category by Occupancy ............................................................................... 38

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-iii

Township of Wilmot Fire Master Plan - Appendix A December 2012

A1.0 DETAILED COMMUNITY RISK ASSESSMENT A1.1 Introduction The Office of the Fire Marshal, Ontario (OFM) provides a number of tools to assist municipalities, and ultimately municipal councils, in determining local needs and circumstances as required by the FPPA. These tools include the Comprehensive Fire Safety Effectiveness Model; the Fire Risk Sub-Model and Public Fire Safety Guideline 01-01-01 “Fire Protection Review Process”.

PFSG 01-01-01 “Fire Protection Review Process” further identifies the three primary components of assessing community needs and circumstances including: Assessing Economic Circumstances from a Fire Protection Perspective (PFSG 02-03-0) Assessing Fire Risk (PFSG 02-02-12) Assessing the Existing Fire Protection Services (PFSG 02-04-01) This section provides a detailed assessment of the current and future (planned growth) fire risk within the Township of Wilmot.

A1.2 OFM Fire Risk Sub-Model The community fire risk analyses within this report follow the OFM framework and specifically the OFM Fire Risk Sub-Model. The model identifies the importance of community risk in the following introductory paragraphs: “Assessing the fire risk within a community is one of the seven components that comprise the Comprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing the relevant factors that characterize the community and applying this information to identify potential fire risk scenarios that may be encountered. The assessment includes an analysis of the likelihood of these scenarios occurring and their subsequent consequences.”

“The types of fire risks that a community may be expected to encounter are influenced by its defining characteristics. For example, a “bedroom community” presents a different set of circumstances over one that is characterized as an “industrial town”. Communities that are distinguished by older buildings will pose a different set of concerns over those that are comprised of newer buildings constructed to modern building codes. Communities populated by a high percentage of senior citizens present a different challenge over ones with a younger population base.

Assessing fire risk should begin with a review of all available and relevant information that defines and characterizes your community. Eight key factors have been identified that contribute to the community’s inherent characteristics and circumstances. These factors influence events that shape potential fire scenarios along with the severity of their outcomes: Property Stock Building Height and Area Building Age and Construction

Detailed Community Risk Assessment Page – A-1

Township of Wilmot Fire Master Plan - Appendix A December 2012

Building Exposures Demographic Profile Geography/Topography/Road Infrastructure Past Fire Loss Statistics Fuel Load Using the framework provided within the OFM’s Fire Risk Sub-model the potential fire risk scenarios present within the community can be assessed by creating a Community Fire Risk Profile. The profile can then be applied to assess the current level of fire protection services provided, and identify where if any potential gaps exist, or identify areas that a municipal Council may want to consider in determining its own ‘needs and circumstances’, as defined by the Fire Protection and Prevention Act (FPPA).

A1.3 Assessing Fire Risk Scenarios The Fire Risk Sub-Model provides communities with the flexibility to determine how their municipality should be defined in terms of fire risk scenarios. Specifically, the model states that: For analyses purposes, the community being assessed can be defined as the municipality in its entirety or as a particular segment of it that distinguishes it from other parts. For smaller municipalities, it may be sufficient to simply define the community based on town boundaries. For larger municipalities, it may be appropriate to subdivide it into separate and distinct components to permit more detailed analysis. For example, it may be convenient to subdivide a municipality based on residential subdivision, downtown sections, industrial park, and a rural area. Hence, the first step in conducting a fire risk analyses is to identify and define the community (s) being analyzed”.

The analyses within this Fire Master Plan utilize the major occupancy classifications of the Ontario Building Code (OBC) to define the fire risk scenarios within the Township of Wilmot.

A1.4 Property Stock The OBC categorizes buildings by their major occupancy classifications. Each classification has inherent definitions that distinguish it from other occupancy classifications. Utilizing the OBC as the source for defining the occupancy classifications provides a recognized definition and baseline for developing the Community Risk Profile.

The OBC major occupancy classifications are divided into six major building occupancy classifications (groups). Within each group the occupancies are furthered defined by division. The OBC major classification groups and divisions are presented in Table 1.

Detailed Community Risk Assessment Page – A-2

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 1: OBC Major Occupancy Classification Group

Division

Description of Major Occupancies

1

Assembly occupancies intended for the production and viewing of the performing arts

Group A

2

Assembly occupancies not elsewhere classified in Group A

Group A

3

Assembly occupancies of the arena type

Group A

4

Assembly occupancies in which occupants are gathered in the open air

Group B

1

Detention occupancies

Group B

2

Care and treatment occupancies

Group B

3

Care occupancies

Group C

---

Residential occupancies

Group D

---

Business and personal services occupancies

Group E

---

Mercantile occupancies

Group F

1

High hazard industrial occupancies

Group F

2

Medium hazard industrial occupancies

Group F

3

Low hazard industrial occupancies

Group A Assembly

Assembly

Assembly

A1.4.1

Community Risk Profile – Major Occupancy Classifications

The Fire Risk Sub-model developed by the Office of the Fire Marshal utilizes the major group classifications only (Group A, B, C, D, E, F). The Fire Risk Sub-model does not use the detailed “Division” classifications provided for the respective occupancy groups.

This strategy provides the ability to assess property stock within a community comparatively by major occupancy groups thus providing a consistent and recognized definition for each major occupancy type.

Where necessary this strategy provides the opportunity for further analysis of a specific occupancy group.

For example a ‘Group F Industrial’ that is a ‘Division 1’ is a ‘High hazard industrial occupancy’. Subject to any site specific hazards or concerns individual occupancies within this group can be assessed individually and then included where required within the scope of the broader community risk profile.

The following describes the major occupancy classifications used within the Fire Risk Sub-model.

A1.4.2

Assembly Occupancies (Group A)

Assembly occupancies are defined by the OBC as the “occupancy or the use of a building or part of a building by a gathering of persons for civic, political, travel, religious, social, educational, recreational or similar purposes or for the consumption of food or drink”.

Detailed Community Risk Assessment Page – A-3

Township of Wilmot Fire Master Plan - Appendix A December 2012

Risks within these occupancies can include: overcrowding by patrons lack of patron familiarity with emergency exit locations and procedures staff training in emergency procedures large quantities of combustible furnishings and decorations Proactive measures for reducing risks can include: regular fire prevention inspection cycles automatic fire detection and monitoring systems approved Fire Safety Plan and staff training pre-planning by fire suppression staff

A1.4.3

Care and Detention Occupancies (Group B)

A care or detention occupancy means the occupancy or use of a building or part thereof by persons who; are dependent on others to release security devices to permit exit; receive special care and treatment; or receive supervisory care.

Risks within these occupancies can include: inability to evacuate or relocate patients presence of flammable/combustible gases vulnerable occupants combustible furnishings Proactive measures for reducing risks can include: regular fire prevention inspection cycles automatic fire detection and monitoring systems approved Fire Safety Plan and staff training pre-planning by fire suppression staff

A1.4.4

Residential Occupancies (Group C)

A residential occupancy is defined as one that is used by persons for whom sleeping accommodation is provided but who are not harboured or detained there to receive medical care or treatment or who are not involuntarily detained there.

Within this occupancy classification both the Ontario Fire Code (OFC) and the Ontario Building Code classify residential low-rise buildings as up to and including six stories in building height. Buildings in excess of six stories are considered as high-rise buildings. Comparatively Statistics Canada defines lowrise buildings as being less than five stories in building height and high-rise as five stories and greater.

Another example of a use within this occupancy group would be mobile homes or travel trailers. The common factor is overnight accommodation (sleeping) when an occupant can be at the highest risk.

As the primary source for data regarding community risk factors is provided by Statistics Canada this analysis utilizes the Statistics Canada definitions for residential occupancies.

Risks within these occupancies can include: Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-4

Township of Wilmot Fire Master Plan - Appendix A December 2012

overnight accommodation (sleeping) combustible furnishings secondary units (basement apartments) high density human behavior (cooking, use of candles, etc.)

Proactive measures for reducing risks can include: Smoke Alarm Program Public Education Programming including Home Escape Planning Retro-fit and compliance inspection cycles for OBC and OFC compliance Pre-planning by fire suppression staff

A1.4.5

Business and Personal Services Occupancies (Group D)

Business and personal services occupancies are defined as those that are used for the transaction of business or the provision of professional or personal services.

These occupancies can be located within remodelled single family dwellings, low-rise and high-rise buildings. Each of these building types can present different risks including egress for firefighting operations and evacuation by occupants.

Risks within these occupancies can include: high volume of occupants high combustible loading specialized equipment utilizing high risk substances such as radiation consumers unfamiliar with emergency exits and procedures Proactive measures for reducing risks can include: regular fire prevention inspection cycles to sustain OFC compliance targeted fire prevention inspections for OFC retro-fit compliance staff training in fire prevention and evacuation procedures public education pre-planning by fire suppression staff

A1.4.6

Mercantile Occupancies (Group E)

This occupancy is defined as one that is used for the displaying or selling of retail goods, wares, and merchandise.

These occupancies range in size and potential risk from smaller neighbourhood corner stores to the large â&#x20AC;&#x153;big boxâ&#x20AC;? industrial style buildings that survive on the sale of large volume. Large volumes of combustibles are typically present in all applications.

Risks within these occupancies can include: high volume of occupants/staff high volume of combustible loading/high rack storage Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-5

Township of Wilmot Fire Master Plan - Appendix A December 2012

lack of occupant familiarity with emergency exit locations and procedures size of building Proactive measures for reducing risks can include: regular fire prevention inspection cycles automatic fire detection and monitoring systems approved Fire Safety Plan and staff training pre-planning by fire suppression staff

A1.4.7

High/Medium/Low Hazard Industrial Occupancies (Group F)

Industrial occupancies are defined as those used for the assembly, fabrication, manufacturing, processing, repairing or storing of goods and materials. This category is divided into low hazard (F3), medium hazard (F2) and high hazard (F1) based on its combustible content and potential for rapid fire growth.

The potential for major fires within this occupancy type is related to the high levels of combustibles that are present in storage and utilized in the manufacturing process. This can include highly flammable and corrosive products.

Risks within these occupancies can include: large dollar loss as a result of a major fire economic loss in the event of plant shut downs and job loss environmental impacts presence of ignition sources related to processing activities Proactive measures for reducing risks can include: regular fire prevention inspection cycles staff training in fire prevention and evacuation public education pre-planning by fire suppression staff installation of early detection systems (smoke alarms, heat detectors) installation of automatic sprinkler systems

A1.4.8

Other Occupancies/Uses not listed within the OBC (Not Classified)

There are other occupancies and uses not included within the OBC major building occupancy classifications that should be considered as part of developing the Community Risk Profile. These include occupancies that may be regulated under other legislation such as federally or provincially owned facilities.

Examples of these include: major railway lines major highways and transportation corridors outdoor tire storage facilities farm / agricultural buildings Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-6

Township of Wilmot Fire Master Plan - Appendix A December 2012

A1.4.9

Property Stock Analysis

Utilizing the property stock classifications contained within the Fire Risk Sub-model Table 2 provides a summary of the property stock within the Township of Wilmot.

Table 2: Property Stock Profile Township of Wilmot Occupancy Classification

Occupancy Definition Fire Risk Sub-model

(OBC)

(OFM)

Number of Occupancies

Percentage of Occupancies

Group A – Assembly

Assembly occupancies

102

1.4%

Group B - Institutional

Care or Detention occupancies

9

0.1%

Group C - Residential

Residential occupancies

6,762

90.2%

Group D/E - Commercial Business and Personal Services Occupancies

81

1.1%

Group F - Industrial

Industrial occupancies

143

1.9%

Not classified within the Ontario Building Code (i.e. farm buildings)

400 (approximate estimate)

5.3%

7,497

100%

Other occupancies

Totals

The majority (90.2%) of the Township of Wilmot property stock is Group C residential. The second largest percentage of property stock (5.3%) consists of other occupancies not classified within the Ontario Building Code (e.g. farm buildings, etc.).

This particular analysis confirms that as a community the Township of Wilmot represents the typical level of risk that would be found in comparable municipalities within the Province of Ontario. These include smaller urban centres surrounded by large tracts of agricultural and environmentally protected areas forming a larger community. . Agriculture is very prevalent throughout the Township. Farm buildings (not classified within the OBC) vary in size and use from small utility sheds to large livestock barns.

The Township’s other occupancies include industry (56 acres) and assembly occupancies. The industrial occupancies are mainly located along Highway 7/8 in Baden and New Hamburg. Commercial occupancies are located within the downtown core, however most new commercial development is occurring outside of this area.

Residential occupancies include commercial/residential mixed used buildings located within downtown New Hamburg, several seniors’ orientated complexes and extended care facilities, and a mix of typical single family dwellings.

A1.4.10 Property Stock Profile Observations The analysis of the Property Stock Profile for the Township of Wilmot confirms that the largest percentage of major occupancies (90.2%) is “Group C” residential. Significant priority should be given to developing a Fire Master Plan that reflects the risks associated with this occupancy category. A key element in mitigating residential risks is maximizing the use of all three lines of defence.

Detailed Community Risk Assessment Page – A-7

Township of Wilmot Fire Master Plan - Appendix A December 2012

The priority of addressing the residential fire risk is supported by the historic data1 provided by the Office of the Fire Marshal, Ontario that reports for the period from 2006 to 2010 residential fires accounted for 72% of all structure fire losses and for the period from 2001 to 2010 residential fires accounted for 86% of all fire fatalities.

The second largest percentage of 5.3% consists of occupancies that are not classified within the Ontario Building Code. This is consistent with the large rural area of the Township that contains many original farms and related buildings such as barns and implements storage buildings.

1

Sources, OFM website: http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/F atalFiresSummary/stats_fatal_summary.html http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFires/FireL ossesCausesTrendsIssues/stats_causes.html Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-8

Township of Wilmot Fire Master Plan - Appendix A December 2012

A2.0 BUILDING HEIGHT AND AREA Buildings that are taller in height, or contain a large amount of square footage (footprint) can have a greater fire loss risk and life safety concern.

A2.1 Building Height One of the unique characteristics and risks of tall / multi-storey buildings is known as the “stack effect”.

This is characterized as vertical air movement occurring throughout the building, caused by air flowing into and out of the building typically through open doors and windows. The resulting buoyancy caused by the differences between the indoor/outdoor temperature and elevation differences causes smoke and heat to rise within the building. This can have a dramatic effect on smoke permeation throughout the common areas and individual units within the building. This can be directly related to the high percentage of deaths that occur in high-rise buildings as a result of smoke inhalation.

The nature of taller buildings also brings the presence of higher occupant loads and higher fuel loads due to the quantity of furnishings and building materials. Efficient evacuation can also be a challenging process due to a lack of direction / signage and knowledge / familiarity of the occupants which may result in overcrowding of stairways and exit routes.

Ensuring all required life safety systems are in place and functioning is a priority for these occupancies.

Taller buildings can experience extended rescue / suppression response times for firefighters to ascend to the upper levels. Options such as “shelter-in-place” whereby occupants are directed by the fire department to stay within their units can be an effective strategy. However, ensuring internal building communications systems are in place and functioning is critical to the success of this strategy.

There are no residential high-rise buildings within the Town.

A2.2 Building Area Building area can cause comparable challenges as those present in taller buildings. Horizontal travel distances rather than vertical can mean extended response times by firefighters attempting rescue or fire suppression activities.

Large buildings, such as industrial plants and warehouses, department stores, and the new “big box” stores, can contain large volumes of combustible materials. In many of these occupancies the use of high rack storage is also present. Fires within this type of storage system can be difficult to access and cause additional risk to firefighter safety, due to collapse risks.

The Town has a small number of large industrial/commercial/mixed-use buildings. For example, the Maple Leaf Foods facility located at 70 Heritage Drive, is a very large building in terms of square footage, however, the contents of the building are considered to be low hazard in terms of a combustible load. Other examples of buildings with large areas and potential fire loss risk include: Erb Transport, large combustible building; Ontario Drive and Gear, large building; 10,000 Villages Warehouse Facility, large building; and Eurocan, manufacturing, packaging and shipping, large building (220,000 square feet) Detailed Community Risk Assessment Page – A-9

Township of Wilmot Fire Master Plan - Appendix A December 2012

The Township also has a historic downtown core in New Hamburg consisting of multi-unit buildings containing mixed-use occupancies as defined by the OBC. Many of these include residential units above commercial stores located on the ground floor. In terms of building height these buildings would not be considered higher risk; however, in terms of area these buildings cover relatively large areas (square footage).

A2.2.1

Building Height and Area Observations

The analysis of the buildings within the Township in regards to height and area represent a minimal risk.

This includes all occupancy classifications. There are also a limited number of large area (by square footage) buildings with the exception of those located along the Highway 7/8 corridors. The multi-use occupancies present in the downtown core of New Hamburg in addition to their large coverage area represent a potentially significant fire loss risk.

The observations of this section are consistent with the need to prioritize a pro-active fire inspection and compliance program. These strategies should be aligned with optimization of the first two lines of defence with the Fire Master Plan.

A2.3 Building Age and Construction As a community the Township of Wilmot began to develop during the late 1800â&#x20AC;&#x2122;s. Many of the older buildings within the central areas of New Hamburg and Baden have historic ties to this era. As the community has grown the large majority of new construction has occurred outside of the downtown core.

This includes both commercial and residential growth. Residential development has been mainly in the form of low density housing.

A2.3.1

Building/Fire Code Application

The Ontario Building Code (OBC) was adopted in 1975. The Ontario Fire Code (OFC) was similarly adopted in 1981. Together these two documents have provided the foundation for eliminating many of the inconsistencies in building construction and maintenance that were present before their adoption.

The OBC and the OFC were developed to ensure uniform building construction and maintenance standards are applied for all new building construction. The codes also provide for specific fire safety measures depending on the use of the building. Examples of the fire safety issues that are addressed include: occupancy exits/means of egress including signs and lighting fire alarm and detection equipment fire department access inspection, testing, and maintenance In 1983 the OFC was further expanded to include retrofit requirements for many of the building constructed prior to adoption of the code. Retrofit requirements were established to ensure a minimum acceptable level of life safety is present. A number of occupancy types are included within the retrofit requirements including assembly, boarding, lodging and rooming houses, health care facilities, multi-unit residential, two-unit residential, and hotels.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-10

Township of Wilmot Fire Master Plan - Appendix A December 2012

A2.3.2

Residential Buildings

The priority of addressing the residential fire risk is supported by the historic data provided by the Office of the Fire Marshal, Ontario that reports2 for the period from 2006 to 2010 residential fires accounted for 72% of all structure fire losses and for the period from 2001 to 2010 residential fires accounted for 86% of all fire fatalities.

These facts make understanding the age and construction of a community’s residential building stock an important component of developing a Community Risk Profile.

The Township of Wilmot’s residential building structural dwelling types are summarized in Table 3.

Table 3: Residential Structural Dwelling Type Structural Dwelling Type

Township of Wilmot3

% of

Ontario 4

Units

% of Units

Single-Detached House

5,525

79.3

2,718,880

55.6

Semi-Detached House

640

9.2

279,470

5.7

Row House

165

2.4

415,230

8.5

Apartment-Duplex

85

1.2

160,460

3.3

Apartment-more than 5 Stories

0

0

789,975

16.2

Apartment-less than 5 Stories

525

7.5

498,160

10.2

Other single-attached House

5

0.1

9,535

0.2

Movable Dwelling

15

0.2

15,795

0.3

6,965

100

4,887,510

100

Total

In comparison to the provincial data the Township of Wilmot percentage of single-detached housing of 79.3% represents a significantly larger component of the residential dwelling types than that of the province at 55.6%. Semi-detached houses are the second highest percentage of residential dwellings at 9.2% which is relatively higher than the provincial data of 5.7%.

Historical data provided by the Office of the Fire Marshal indicates that fires in single-detached dwellings are responsible for nearly two thirds of all residential fires. The data further indicates that detached homes generally account for 80% of all single-family dwelling fires, with semi-detached and attached homes evenly contributing the remaining 20%.

The Township of Wilmot’s residential buildings age are summarized in Table 4.

2

Source, OFM website: http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/F atalFiresSummary/stats_fatal_summary.html http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFires/FireL ossesCausesTrendsIssues/stats_causes.html 3

Source: Statistics Canada - 2011 Census Data

4

Source: Statistics Canada - 2011 Census Data Detailed Community Risk Assessment Page – A-11

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 4: Age of Construction

Period of Construction

Township of Wilmot

Prior to 1946

% of Units

Ontario

% of Units

1,310

21.5

677,875

14.9

1946 to 1960

530

8.7

690,155

15.2

1961 to 1970

740

12.1

640,660

14.0

1971 to 1980

710

11.6

776,745

17.0

1981 to 1985

210

3.4

338,575

7.4

1986 to 1990

525

8.6

410,160

9.0

1991 to 1995

475

7.8

291,480

6.4

1996 to 2000

595

9.8

312,215

6.9

2001 to 2006

1,000

16.4

417,165

9.2

6,095

100

4,554,255

100

Total

An important component of this analysis is the percentage of residential buildings built prior to the adoption of the Ontario Fire Code in 1981. Table 4 indicates that 54% of the Township’s residential buildings were built prior to 1981 in comparison to 61% of those in Ontario.

In relation to the OFC the Township has a relatively newer percentage of residential dwelling buildings than that of the province.

A2.3.3

Non-Residential Buildings

During the late 19th century and early 20th century’s balloon frame construction was a common framing technique used in both residential and small commercial construction. This technique permitted the spread of fire and smoke to move rapidly from the lower floors to upper floors and the roof level. Understanding the age of construction of dwellings can assist in determining if balloon framing may have been utilised.

Modern construction techniques have introduced the use of platform construction whereby each level is built as a component of the overall structure. This technique in addition to the use of fire stops has reduced the extension of fire and smoke by creating horizontal barriers.

Specific information such as the census data is not available for non-residential buildings; however the experience of community planning and development provides a relative comparison when assessing the age and construction of a community. Tours of the community and discussions with Town staff indicate that a large percentage of the non-residential buildings also pre-date the OFC adoption in 1981.

A2.3.4

Building Age and Construction Observations

As a community the current building stock of the Township is representative of a small urban settlement area that has grown over the past century to the current mixed use urban/rural community.

Detailed Community Risk Assessment Page – A-12

Township of Wilmot Fire Master Plan - Appendix A December 2012

Residential single-detached housing units represent 79.3% of the 6,965 residential dwelling structures.

48.76% of the residential building stock was built prior to adoption of the Ontario Fire Code in 1981.

The majority of the residential building stock is of newer construction technology including flame retardant materials and construction techniques. Buildings within the downtown core represent the highest fire loss risk due to age and construction.

A2.4 Building Exposures Closely spaced buildings, typical of historic downtown core areas, and newer infill construction, have a higher risk of a fire propagating (fire spreading to an adjacent exposed building). A fire originating in one building could easily be transferred to neighbouring structures due to the close proximity. The close proximity of buildings can also impede firefighting operations due to the limited access for firefighters and equipment.

Adoption of the OBC and the OFC has required spatial separations and the use of fire retardant materials and constructions methods to reduce the fire risks. In addition to the construction and planning requirements within the respective codes, basic firefighting practices consider the protection of exposures as a primary function and consideration in the event of a response by the fire department.

A2.4.1

Building Exposures Observations

The risk of exposures as a result of a fire can occur in incidents involving buildings that are in compliance with current OBC and OFC requirements as well as those that may have been constructed prior to these public safety initiatives.

As a large percentage of the building stock within the Township of Wilmot was constructed prior to the current OFC the probability of a fire spreading to involve other exposures is of concern.

The age and construction of the buildings within the downtown core present the most significant risk for fire spread both internally and to adjacent buildings due to the close proximity and combustible construction of many of these buildings.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-13

Township of Wilmot Fire Master Plan - Appendix A December 2012

A3.0 DEMOGRAPHIC PROFILE In terms of demographic profile with regard to developing a community risk profile it is important to understand a number of key factors related to residents of the community. Assessing these factors in relation to provincial statistics is an effective tool in understanding where there may be vulnerable groups in terms of fire or life risk, or barriers such as language that could affect communication of public education programs. The key factors within the demographic profile include: Population Distribution by Age Group Population Shifts Vulnerable Individuals or Occupancies Language Barriers to Public Education Income level

A3.1 Population Distribution by Age Group Within Canada our aging population has been recognized as one of the most significant demographic trends. Based on current data it is predicted that by the year 2026, one in every five Canadians will have reached the age 65. Seniors, those 65 and above represent one of the highest fire risk target groups in Ontario.

Information provided by the Office of the Fire Marshal indicates that “between 2000 and 2004 the leading cause of senior (aged 65 and over) fire deaths were attributed to “open flame tools/smoker’s articles” and “cooking equipment”. These ignition sources were responsible for 35% and 10% respectfully of fire deaths for this age category during this period. It is believed that the decline in cognitive and physical abilities contributes to the frequency of fire incidents relating to careless use of these ignition sources”.

Identifying a community’s population by age category is a core component of developing the Community Risk Profile and identifying specific measures that may be required to mitigate risks associated with a specific age group, such as seniors.

Table 5 provides a comparison of the Township’s population by age group to that of the provincial statistics according to the 2011 census from Statistics Canada.

Table 5: Age Group5 Wilmot

Ontario

Age Characteristics of the Population

5

Total

% Total

Total

% Total

Total population

19,200

-

12,851,820

-

0 to 4 years

1,170

6.1%

704,260

5.5%

5 to 9 years

1,255

6.5%

712,755

5.5%

Source: Statistics Canada - 2011 Census Data Detailed Community Risk Assessment Page – A-14

Township of Wilmot Fire Master Plan - Appendix A December 2012

Wilmot

Ontario

Age Characteristics of the Population Total

% Total

Total

% Total

10 to 14 years

1,270

6.6%

763,755

5.9%

15 to 19 years

1,335

6.9%

863,635

6.7%

20 to 24 years

1,015

5.3%

852,910

6.6%

25 to 44 years

4,810

25.0%

3,383,890

26.3%

45 to 54 years

2,835

14.8%

2,062,020

16.0%

55 to 64 years

2,490

13.0%

1,630,275

12.7%

65 to 74 years

1,685

8.8%

1,004,265

7.8%

75 to 84 years

1,015

5.3%

627,660

4.9%

85 years and over

345

1.8%

246,400

1.9%

Median age of the population

40.4

-

40.0

-

% of the population aged 14 and under

3,390

19.2%

2,180,770

17.0%

% of the population aged 65 and over

2,230

15.8%

1,878,325

14.6%

This comparison indicates that the age characteristics of the population within the Township are relatively consistent with that of the province. There is a slightly higher portion of children (aged 14 and under), which is likely a result of young couples moving out of the city to start families. This is particularly important when comparing the number of deaths as a result of a fire.

Table 6 was prepared using information from the OFM’s review of Ontario Fatal Fire during the ten year period from 2001 to 2010 (revised October 2011). Although no particular age group stands out as a significantly higher risk, when the number of fatalities per million population is calculated, the seniors’ age group are at the greatest risk of fire death compared to other age groups.

Table 6: Provincial % of Fire Fatalities by Age Group Age Characteristics of the Population

% of Age Group

0 to 10 years

8%

10 to 19 years

6%

20 to 29 years

6%

30 to 39 years

10%

Detailed Community Risk Assessment Page – A-15

Township of Wilmot Fire Master Plan - Appendix A December 2012

Age Characteristics of the Population

% of Age Group

40 to 49 years

19%

50 to 59 years

14%

60 to 69 years

12%

70 to 79 years

13%

80+ years

12%

As indicated by the Provincial data, seniors tend to be more at risk. In comparison, the seniorsâ&#x20AC;&#x2122; population of the Township of Wilmot as a percentage of the overall population is similar to that of the provincial data.

A3.2 Population Shifts The population within a community can shift at various times during the day or week and throughout the year. This can be as a result of residents that are required to leave the community to seek employment as opposed to those having employment opportunities within the community. Other examples can include tourist and vacation destinations within a community. Large population shifts can occur during summer months as a direct result of the seasonal availability of these activities or tourism draws within a community.

Communities that are home to educational institutions such as colleges and universities can have a different population shift during the fall and winter months when students are attending school and residing in the community (e.g. student residences).

In both instances the increased risk due to overnight accommodation (sleeping) either in a trailer/hotel/or school residence can be a major factor which can impact the demand for fire protection services.

The Township of Wilmot experiences limited population shift throughout the year. Specific fire protection strategies to address population shifts should not be required; they should be accommodated as part of broader services such as pro-active fire inspections of the facilities occupied by this demographic.

A3.3 Vulnerable Individuals or Occupancies Identifying the location and number of vulnerable individuals, or occupancies within the community will provide insight into the magnitude of this particular demographic within a community. This demographic is typically defined as requiring some type of assistance due to physical/cognitive limitations, disabilities, drug or alcohol use and others that may require assistance to evacuate in the event of a fire.

Occupancies that should be considered when assessing this demographic include hospitals, seniorsâ&#x20AC;&#x2122; apartments, group homes, rooming houses, residential care facilities, daycare centres and long-term care facilities. Table 7 lists the retirement homes and communities in Wilmot.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-16

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 7: Retirement Homes and Communities in Wilmot6 Community Maple Heights Seniors Residence Nith Terrace Seniors’ Apartments Morningside Village Stonecroft Homes

Address 1108 Queen Street South, New Dundee 156 Waterloo Street, New Hamburg 10 Homestead Place, New Hamburg 156 Stonecroft Way, New Hamburg

A3.4 Language Barriers to Public Education Cultural diversity and ethnic background can be factor that fire departments must consider in developing and delivering programs related to fire prevention and public education. Communication barriers in terms of language and the ability to read written material can have an impact of the success of these programs.

Table 8 provides a breakdown of the mother tongue of residents within the Town based on the 2006 Statistics Canada census information.

Table 8: Mother Tongue of Wilmot Residents Language Total population English French English and French Other

Wilmot Total % Total 16,975 14,780 87% 135 1% 20 0% 2,035 12%

Ontario Total % Total 12,028,895 8,230,705 69% 488,815 4% 32,685 0% 3,276,685 27%

English is the primary language of the Township’s population (87%). Therefore language barriers are expected to be relatively infrequent. However, communications barriers, including language differences, should still be taken into consideration, especially when working with specific community groups.

A3.5 Income Levels Table 9 summarizes household data from the 2006 Census from Statistics Canada. Wilmot, as a Township, has a higher population density than the province. Wilmot also has a higher median income and a slightly higher average value of owned dwellings than the provincial average. These statistics are typical of a mostly rural community in close proximity to a regional centre.

6

Source: Canpages.com Detailed Community Risk Assessment Page – A-17

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 9: 2006 Statistics Canada Household Data Census Characteristic Population Density

Wilmot 64.8

Ontario 13.4

Median Income (all census families)

$83,540

$60,455

Average Value of Owned Dwelling

$313,715

$297,479

Total # of Dwellings Owned

5,225

4,547,785

% Owned Dwellings

86%

71%

% Rented Dwellings

14%

28%

A3.6 Demographic Profile Observations The demographic analysis of Wilmot indicates that by age category the Township is very representative of the provincial statistics. Seniors as a component of the population are also reflective of the provincial statistics and as such should be considered as a vulnerable component of the population. There are a minimum number of buildings identified where the most vulnerable demographic of the community reside. These buildings should be considered as high risk with regard to developing a pro-active fire prevention and protection program. Optimizing the first two lines of defence should be considered a priority for these facilities as part of the Fire Master Plan.

English is the predominate language within the community representing 87% of the population. This indicates that there should be a very minimal language barrier in the delivery of fire prevention and public education programs.

In general income levels and the percentage of home ownership are higher than that of the provincial averages. These factors also relate to a lower percentage of rental housing compared to the provincial averages.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-18

Township of Wilmot Fire Master Plan - Appendix A December 2012

A4.0 GEOGRAPHY / TOPOGRAPHY / ROAD INFRASTRUCTURE Located directly to the west of Kitchener-Waterloo and within the Regional Municipality of Waterloo, the Township of Wilmot has the third largest geographic area of the seven municipalities within the Region (264 square kilometres). The Township also has the fifth largest population at 19,2007. The majority of the Township’s population is New Hamburg and Baden. The remainder of the Township’s population is interwoven into the rural areas and surrounding natural heritage system.

The Township has identified Environmentally Constrained Areas. These are lands which consist of hazard lands and lands with higher order environmental significance (e.g. ESPAs). Hazard lands are characterized by physical and environmental constraints such as steep slopes, organic soils, erosion susceptibility, floodplains, other geophysical limitations and their associated buffers and setbacks. This policy is intended to prevent the loss of life and minimize property damage and social disruption through the restriction of land use activities on lands susceptible to erosion or flooding, while permitting limited development on lands where it is determined to be appropriate and safe. Lands identified as Environmentally Constrained Lands are intended primarily for the preservation and conservation of the land and environment. The central part of New Hamburg lies on land that is prone to flooding, and is regulated by the Grand River Conservation Authority (GRCA). Residents in these areas are provided with information and warnings related to flood conditions. This is achieved through cooperation between the Township of Wilmot, Region of Waterloo, Waterloo Regional Police Service and the GRCA. The urban and settlement areas and the environmentally constrained lands are shown in the Township’s Official Plan maps 2 and 3 included below as Figure 1 and Figure 2, respectively.

The road network within the Township consists of primarily two lane rural profile infrastructure. Roads within the urban areas and the newer commercial/industrial growth districts have a more modern two lane urban profile including storm sewers and sidewalks. Highway 7/8 which runs east-west through the Township is a four lane freeway. The Township and its population centres are well-served by a number of north-south and east-west Regional (arterial) roadways. The existing and proposed road network is depicted below in Figure 3.

7

Population in 2011: 19,233, Statistics Canada, 2011 Census Detailed Community Risk Assessment Page – A-19

Inset Map # 2

Inset Map # 1 Baden

St. Agatha

TOWNSHIP OF WILMOT

New Hamburg

FIRE MASTER PLAN

Petersburg

LAND USE ZONING FIGURE # 1

Waterbody Municipal Boundary

Zoning Core Area Highway Commercial Dry Industrial Commercial Light Industrial Industrial Residential Open Space Major Recreation See Inset Map # 2

Future Land Use

Inset Map # 3 See Inset Map # 1

New Dundee

0

0.5

1

2

3 km

SCALE 1:120,000

See Inset Map # 3

²

MAP DRAWING INFORMATION: DATA PROVIDED BY MNR MAP CREATED BY: JJA MAP CHECKED BY: SC MAP PROJECTION: NAD 1983 UTM Zone 17N

FILE LOCATION: I:\GIS\126148 - Wilmot FMP\Mapping\Wilmot_LandUse.mxd

PROJECT: 12-6148

FINAL STATUS: DRAFT DATE: 07/24/12

Township of Wilmot Fire Master Plan - Appendix A December 2012

Figure 2: Township of Wilmot Official Plan Environmentally Constrained Lands

(Source: Township of Wilmot Official Plan November 2006 Consolidation)

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-21

Township of Wilmot Fire Master Plan - Appendix A December 2012

Figure 3: Township of Wilmot Official Plan Transportation

(Source: Township of Wilmot Official Plan November 2006 Consolidation) There are two Primary Township Corridors proposed as identified in Figure 3.3. The Township requires that all development applications be in accordance with the Regional Municipality of Waterloo’s Emergency Access Guidelines.

A4.1 Geography/Topography/Road Infrastructure Profile Observations The risks associated with the geography, topography and road infrastructure within the Township are predominantly those associated with the large overall size of the municipality and the rural residential areas located outside of the built-up communities. This typically means longer emergency response times from the fire stations, located in the urban areas, out to the rural areas and occupancies. In developing the Fire Master Plan consideration should be given to prioritizing the delivery of public education and fire prevention programs in these areas. This should include optimization of the department’s smoke alarm program and home fire safety planning for areas with extended emergency response travel times.

The road network layout is primarily a grid pattern of arterial rural roads and local roads which provide access to these rural residential locations. The population centres within the Township, including the main urban areas and settlement areas are well served and connected by the road network.

The following potential constraints within New Hamburg have been identified: There is only one rail crossing in the community. A problem there would result in greatly increased response time to areas north of the rail line from Station 3 in New Hamburg.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Huron St. Bridge creates response issues if it is closed due to maintenance, or should an accident occur compromising its structural integrity.

Several other bridges on rural roads have load restrictions.

A4.2 Past Fire Loss Statistics Identifying and understanding trends through the analysis of historical data provides valuable insight into community’s specific trends. Assessing the key factors of life safety risk and fire risk in relation to provincial statistics provides a foundation for evaluating where specific programs or services may be necessary.

A4.2.1

Fire Loss by Occupancy Classification

For the period from 2006 to 2010 there were 67,028 fires within Ontario with a loss reported to the OFM. During this period 62.2% or 41,700 of these involved a structure and 37.8% or 25,328 of these fires involved a vehicle.

Table 10 indicates the provincial fire loss by property classification for the period 2006 to 2010.

Table 10: Provincial Fire Loss by Occupancy Classification Period 2006 to 2010 Occupancy Definition Fire Risk Sub-model (OFM)

Ontario Fire Loss by Occupancy Classification

Group A – Assembly

Assembly occupancies

5%

Group B - Institutional

Care or Detention occupancies

1%

Group C - Residential

Residential occupancies

72%

Business and Personal Services Occupancies

3%

Group E - Mercantile

Mercantile occupancies

4%

Group F - Industrial

Industrial occupancies

8%

Not classified within the Ontario Building Code (i.e. farm buildings)

7%

Reported structure fires

41,700

Occupancy Classification (OBC)

Group D - Business

Other occupancies

Reported fires

For this period 72% of the fires with a loss occurred within a Group C - residential occupancies.

In comparison to the provincial analysis the Township of Wilmot property loss as a result of fires is presented in Table 11 below (OFM data for Wilmot). For the same period the analysis indicates that 63.4% of the fires reporting a loss occurred in Group C - residential occupancies. The Township did experience a much higher percentage of fires with a loss in the Group F Industrial occupancy classification.

Detailed Community Risk Assessment Page – A-23

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 11: Township of Wilmot Fire Loss by Property Classification Period 2006 to 2010 Occupancy Definition

Township of Wilmot

Fire Risk Sub-model

Fire Loss by

(OFM)

Occupancy Classification

Assembly occupancies

4.9%

Group B – Institutional

Care or Detention occupancies

N/A

Group C – Residential

Residential occupancies

63.4%

Business and Personal Services Occupancies

2.4%

Group E - Mercantile

Mercantile occupancies

2.4%

Group F - Industrial

Industrial occupancies

19.5%

Other occupancies

Not classified within the Ontario Building Code (i.e. farm buildings)

7.4%

Reported fires

excluding buildings under National Farm Building code (6 fires)

41

Occupancy Classification (OBC) Group A – Assembly

Group D - Business

A4.2.2

Reported Fire Cause

Assessing the possible cause of the fires reported is an important factor in identifying any potential trends, or areas that may be considered for introducing additional public education of fire prevention initiatives as part of the community fire protection plan.

Table 12 provides a summary of the reported possible cause of the 47 fires reported during the period 2006 to 2010 for the Township of Wilmot. (OFM data for Wilmot) Table 12: Township of Wilmot 2006 to 2010 Reported Fire Cause Nature

Fire Cause

Number of Fires

% of Cause

Intentional

Arson

3

6.4%

Intentional

Vandalism

0

0%

Unintentional

Children Playing

0

0%

Unintentional

Design/Construction/Maintenance deficiency

9

19.2%

Unintentional

Mechanical /Electrical failure

7

14.9%

Unintentional

Misuse of ignition source

7

14.9%

Unintentional

Other unintentional

5

10.6%

Unintentional

Undetermined

0

0%

Other

Other

1

2.1%

Undetermined

Undetermined

15

31.9%

47

100%

Total number of fires and percentage Detailed Community Risk Assessment Page – A-24

Township of Wilmot Fire Master Plan - Appendix A December 2012

There are four categories of cause utilized to classify the cause of a fire. These include intentional, unintentional, other, and undetermined.

The “intentional” category recognises the cause of a fire to be started for a specific reason. These are typically classified as arson fires, and for example can be related to acts of vandalism, or to achieve personal gain through insurance payment. There were three arson fires reported for this period.

The “unintentional” category recognises a number of the common causes of a fire that represent both human behavioural causes such as playing with matches, and equipment failures such as a mechanical failure. Unintentional design/construction deficiencies represent 19.2% of the cause for the 47 fires during this period.

The cumulative percentage of “unintentional–other unintentional (10.6%), other-other (2.1%) and undetermined-undetermined (31.9%)” represents a total of 44.6% of all fire causes. This indicates that there was no specific cause identified for approximately almost half of all fires during this period.

A4.2.3

Reported Ignition Source

Table 13 similarly provides the reported ignition source for the 47 fires that occurred during the period 2006 to 2010. (Source: OFM fire loss data for the Township of Wilmot).

Table 13: Township of Wilmot 2006 to 2010 Ignition Source Class Reported Ignition Source

Number of Fires

% of Cause

Appliances

4

8.5%

Cooking equipment

4

8.5%

Electrical distribution

2

4.3%

Heating equipment chimney etc.

6

12.7%

Lighting equipment

1

2.1%

Open flame tools/smokers articles

2

4.3%

Other electrical/mechanical

1

2.1%

Processing equipment

2

4.3%

Miscellaneous

9

19.2%

Exposure

1

2.1%

Undetermined

15

31.9%

Total number of fires and percentage

47

100%

(Source: OFM historic fire loss data for Wilmot) Undetermined ignition sources represent the largest percentage at 31.9%. Miscellaneous represented the second largest percentage at 19.2%. Out of the main categories of determined ignition sources, heating equipment, including chimneys, woodstoves, and fireplaces were the largest percentage at 12.7%.

A4.2.4

Reported Civilian Injuries and Fatalities

Table 14 indicates the number of fire related civilian injuries and fatalities that occurred within the Township of Wilmot during the period 2006 to 2010 (OFM Data for Wilmot).

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 14: Township of Wilmot 2006 to 2010 Reported Civilian Injuries and Fire Deaths Occupancy Definition

Occupancy Classification

Injuries

Fatalities

Fire Risk Sub-model

(OBC)

(OFM)

Group A â&#x20AC;&#x201C; Assembly

Assembly occupancies

0

0

Group B - Institutional

Care or Detention occupancies

0

0

Group C - Residential

Residential occupancies

1

2

Business and Personal Services Occupancies

0

0

Group E - Mercantile

Mercantile occupancies

0

0

Group F - Industrial

Industrial occupancies

0

0

Not classified within the Ontario Building Code (i.e. farm buildings)

0

0

Group D - Business

Other occupancies

During this period there were two reported fatalities as a result of a fire in a Group C - residential occupancy that occurred in 2009. The fire was a result of Design/Construction/Maintenance deficiencies.

There was one reported injury during this period. The cause of this injury is undetermined.

A4.3 Past Fire Loss Profile Observations Based on the historical data for the period 2006 to 2010 the Township of Wilmot experienced the highest rate of fires within the Group C - residential occupancies. This result is consistent with that of the provincial profile. However, the rate of fires in Group F - industrial occupancies at 19.5% was more than double the provincial rate.

Undetermined causes representing 31.9% and Design/Construction/Maintenance deficiencies representing 19.2% were the leading causes for fires during this period. The cumulative percentage of fire causes that could not be determined represented 44.6% of the 47 fires reported during this period.

Undetermined ignition sources at 31.9% and miscellaneous at 19.2% represented the two leading ignition sources of the 47 fires reported during this period.

The analysis of the past fire losses within the Township of Wilmot further defines that Group CResidential occupancies represent the highest level of risk within the community.

Enhancing the first line of defence, including pro-active prevention and education programs, targeted at the areas identified within this Community Risk Profile, should be considered a priority within the Fire Master Plan.

A4.4 Fuel Load Profile Fuel load typically refers to the amount and nature of combustible content and materials within a building. This can include combustible contents, interior finishes as well as structural materials.

Combustible content tends to create the greatest potential fire loss risk. This can include industrial materials, commercial materials or typical office furnishings. Higher fuel loads results in increased fire loss risk due to increased opportunity for ignition and increased fire severity.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-26

Township of Wilmot Fire Master Plan - Appendix A December 2012

In many communities large amounts of fuel load can be contained within a single occupancy such as a building supply business, or alternatively within a large multi-occupancy building such a historical downtown core.

As presented previously within this report, age and construction of a building can also have an impact on fuel load given that older buildings likely have a larger volume of combustible construction such as wood framing rather than newer construction utilizing concrete and steel products.

Our analysis of fuel load within the Township of Wilmot indicates that there are a small number of buildings or occupancies where significant fuel loads are present that would be cause for any specific identification. The connected multi-occupancy structures within the downtown core present the highest amount of fuel load concentration. Regular fire prevention inspection cycles and strategies to enforce continued compliance with the OFC are considered as best practices to achieving the legislative responsibilities of the municipality and providing an effective fire protection program to address fuel load risks.

A4.4.1

Fuel Load Profile Observations

In comparison to the number of buildings within the Township of Wilmot there are a small number of buildings having a site specific fuel load concern. In addition to ensuring compliance to the requirements of the OBC and the OFC there are operational strategies that a fire department can implement to address fuel load concerns. These include regular fire inspection cycles and pre-planning of buildings of this nature to provide an operational advantage in the event of fire.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-27

Township of Wilmot Fire Master Plan - Appendix A December 2012

A5.0 COMMUNITY GROWTH & DEVELOPMENT A5.1 Historic Growth The following table indicates the historic populations within the Township of Wilmot, as provided by Statistics Canada, Census Profiles. Historic household population statistics are also included, where available.

Table 15: Historic Growth in Population and Households

Year

Wilmot Population

% Change in Population

Wilmot Population by Household

% Change in Households

1976

10,557

-

N/A

N/A

1981

10,925

3.5%

N/A

N/A

1986

11,145

2.0%

N/A

N/A

1991

13,107

17.6%

4,330

N/A

1996

13,830

5.5%

4,900

13.2%

2001

14,866

7.5%

5,200

6.1%

2006

17,097

15.0%

6,105

17.4%

2011

19,200

12.4%

N/A

N/A

From 2006 to 2011 the population of Wilmot grew by 12.4%, approximately 2.5% per year. This is more than the population growth of the province over the same time period, which was 8.4%, closer to 1.7% per year.

A5.2 Growth Projections Table 16 summarizes the growth projections for the Township from 2006 to 2031.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-28

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 16: Population and Employment Growth Projections Year

2006

2011

2016

2021

2026

2029

Population

17,097

19,200

22,300

N/A

N/A

28,500

Household

6,296

7,158

9,000

N/A

N/A

11,500

Employment

6,730

N/A

N/A

N/A

N/A

9,700

The population and employment estimates shown in the table above predict that over the next 20 years the Township will experience population growth that is similar to the current rate at approximately 2.4% annually. This represents a 22% increase over the next 10 years. Households are expected to grow at a faster pace as the average household size continues to decline in both Wilmot Township and the Province of Ontario.

Employment, however, is predicted to increase by approximately 44% from 2006 to 2029 or an average of 2% per year. This represents a modest increase in employment for the Township. The Township actively moved towards providing more serviced industrial lands and is prepared to designate more lands should the need arise. These lands are primarily located along the Highway 7/8 corridor between New Hamburg and Baden as shown on Figure 4.

A5.3 Growth Projections Profile Observations The population of Township of Wilmot is anticipated to grow at a rate of 2.4% over the coming 20 year period. This represents a 22% population increase over the next 10 years. This population increase is expected to be accommodated in the urban settlement areas namely New Hamburg and Baden.

Approximately 40% of growth is anticipated to occur as intensification with the remaining 60% of growth occurring as Greenfield type subdivisions. The main areas anticipated to support the Greenfield developments are the Activa lands in Baden (north of the Township Offices) and the Pfenning lands in New Hamburg. The Townshipâ&#x20AC;&#x2122;s employments lands are awaiting access to sewage treatment capacity and as such are not anticipated to experience growth prior to 2018. Rural settlement growth is unlikely until at least 2029. Therefore the future geographic locations of population are not expected to vary significantly within the 10 year study horizon.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-29

Township of Wilmot Fire Master Plan - Appendix A December 2012

Figure 4: Industrial Development Lands

(Source: Township of Wilmot Development Service Department)

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-30

Township of Wilmot Fire Master Plan - Appendix A December 2012

A6.0 RISK PROFILE MODEL The OFM Fire Risk Sub-model defines risk “as a measure of the probability and consequence of an adverse effect to health, property, organization, environment, or community as a result of an event, activity or operation. For the purposes of the Fire Risk Sub-model, such an event refers to a fire incident along with the effects of heat, smoke and toxicity threats generated from an incident”.

The OFM model develops an overall risk assessment “by assigning probability and consequence levels to potential adverse events or scenarios due to fire and combining the two to arrive at an overall risk level”.

The OFM Fire Risk Sub-model provides a matrix as one option in arriving at the level of risk for a range of scenarios.

Alternatively the model provides the opportunity “for analysis purposes, the community being assessed can be defined as the municipality in its entirety or as a particular segment of it that distinguishes it from other parts”. The model further provides that ”it may be convenient to subdivide a municipality based on residential subdivision, downtown sections, industrial park, and a rural area”.

For analytical purposes, the methodology within this study uses the OFM Fire Risk Sub-model major occupancy classifications as the basis for segmenting the community by primary building use. Each major occupancy classification is assigned a probability level based on the OFM Fire Risk Sub-model definitions. A consequence level also using the OFM Fire Risk Sub-model definition is then assigned for each major occupancy classification.

The methodology within this report includes a further process of assigning ‘weighting factor’ to each of the eight risk factor categories identified by the OFM Fire Risk Sub-model. Utilizing a range from 1 (lowest) to 3 (highest) each of the factors is assigned a weight factor, to calculated a weighted average.

The weight factor assigns more or less priority to each of the given factors. For example, the demographic profile that identifies the number of vulnerable residents has been assigned the highest factor weight of 3.

This process results in the most relevant categories having more impact on the risk priority level calculated.

The level of risk (Priority Level) for each major occupancy classification is determined by multiplying “probability x consequence = risk level (priority)”. This provides the ability to determine an overall risk level for each major occupancy classification within the community.

This methodology then coordinates the assigned risk level for each major occupancy classification with the Council approved zoning by-law information and mapping. This process provides the opportunity to create a visual model (map) of the Community Risk Profile. This provides the opportunity to view both the current and projected level of risk within the community based on the Council approved Official Plan.

Creating the Community Risk Profile Model provides the opportunity to evaluate the current level of fire protection services provided. The model can further identify where risk levels may increase or change based on growth and long-term planning of the community.

A6.1 Probability Levels The probability of a fire occurring can be estimated in part based on historical experience of the community. The experience of other similar communities and that of the province as a whole can also provide valuable insight into the probability of a fire occurring. The experience of the evaluator and the local fire service staff in collaborating on determining probability is also a key factor.

The OFM Fire Risk Sub-model categorizes the probability of an event occurring into five levels of likelihood. Table 17 identifies the OFM Fire Risk Sub-model categories.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 17: OFM Fire Risk Sub-model Likelihood Levels (Probability) Likelihood Levels (Probability) Description

Level

Rare

1

Unlikely

2

Possible

3

Likely

4

Almost Certain

5

Specifics - may occur in exceptional circumstances - no incidents in the past 15 years - could occur at some time, especially if circumstances change - 5 to 15 years since last incident - might occur under current circumstances - 1 incident in the past 5 years - will probably occur at some time under current circumstances - multiple or reoccurring incidents in the past 5 years - expected to occur in most circumstances unless circumstances change - multiple or reoccurring incidents in the past year

A6.2 Consequence Levels The consequences as a result of a fire relate to the potential losses or negative outcomes associated should an incident occur. The Fire Risk Sub-model identifies four components that should be evaluated in terms of assessing consequence. These include: Life Safety: Injuries or loss of life due to occupant and firefighter exposure to life threatening fire or other situations.

Property Loss: Monetary losses relating to private and public buildings, property content, irreplaceable assets, significant historic/symbolic landmarks and critical infrastructure due to fire.

Economic Impact: Monetary losses associated with property income, business closures, downturn in tourism, tax assessment value and employment layoffs due to fire.

Environmental Impact: Harm to human and non-human (i.e. wildlife, fish and vegetation) species of life and general decline in quality of life within the community due to air/water/soil contamination as a result of fire or fire suppression activities.

The OFM Fire Risk Sub-model evaluates the consequences of an event based on five levels of severity.

Table 18 identifies the OFM Fire Risk Sub-model categories.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 18: OFM Fire Risk Sub-model Consequence Levels Description

Level

Insignificant

1

Minor

2

Moderate

3

Major

4

Catastrophic

5

Specifics - no life safety issue - limited valued or no property loss - no impact to local economy and/or - no effect on general living conditions - potential risk to life safety of occupants - minor property loss - minimal disruption to business activity and/or - minimal impact on general living conditions - threat to life safety of occupants - moderate property loss - poses threat to small local businesses and/or - could pose threat to quality of the environment - potential for a large loss of life - would result in significant property damage - significant threat to businesses, local economy and tourism and/or - impact to the environment would result in a short term, partial evacuation of local residents and businesses - significant loss of life - multiple property damage to significant portion of the municipality - long term disruption of businesses, local employment, and tourism and/or - environmental damage that would result in long-term evacuation of local residents and businesses

A6.3 Risk Levels Once probability and consequence are determined for each major occupancy classification the level of risk is calculated by multiplying â&#x20AC;&#x153;probability x consequence = risk level (priority)â&#x20AC;?. Table 19 identifies the four levels of risk identified within the OFM Fire Risk Sub-model including the lower and upper range of each risk classification and the relative definition of each.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-33

Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 19: OFM Fire Risk Sub-model Risk Levels Priority

Lower – Upper

Level

Range

Low Risk

L1

0 to 6.3

Moderate Risk

L2

6.4 to 12.5

High Risk

L3

12.6 to 18.7

Extreme Risk

L4

18.8 to 25.0

Risk Level

Definition - manage by routine programs and procedures, maintain risk monitoring - requires specific allocation of management responsibility including monitoring and response procedures - community threat, senior management attention needed - serious threat, detailed research and management planning required at senior levels

A6.4 Ontario Fire Code Compliance A major determinate in assessing risk within a community and the major building classifications is compliance with the Ontario Fire Code. The Ontario Fire Code which was adopted in 1981 and the Ontario Building Code were developed to ensure uniform building construction and maintenance standards are applied for all new building construction. The codes also provide for specific fire safety measures depending on the use of the building. Examples of the fire safety issues that are addressed include: occupancy exits/means of egress including signs and lighting fire alarm and detection equipment fire department access inspection, testing, and maintenance In 1983 the OFC was further expanded to include retrofit requirements for many of the building constructed prior to 1981. Retrofit requirements were established to ensure a minimum acceptable level of life safety is present. A number of occupancy types are included within the retrofit requirements including assembly, boarding, lodging and rooming houses, health care facilities, multi-unit residential, two-unit residential, and hotels.

Determining the status of compliance or non-compliance including the status of retrofit requirements particularly for major building occupancies is an important component of developing the Community Risk Profile. This is particularly important within the major occupancies classifications where there is a documented history of property loss as a result of fire, and/or injuries and fatalities as a result of fire.

Group A – Assembly and Group B – Institutional occupancies are the two primary occupancies types where more detailed analysis of compliance and non-compliance should be considered.

Where compliance has been achieved and documented these occupancy classifications can be considered as part of the standard risk identification methodology within this report. Where compliance has not been achieved including retrofit requirements these occupancies should be evaluated independently adding a further assessment of OFC compliance.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Completing the independent evaluation provides the opportunity to assess these buildings on a case by case basis and as such does not impact the overall risk level for the occupancy classification. In the event an individual property is assigned a higher level of risk as a result of non-compliance this methodology provides the opportunity for re-evaluating the risk level for that specific property once compliance is achieved.

Group A – Assembly Occupancies – Non-Compliant OFC All Group A - Assembly occupancies are currently in compliance with the OFC. Group B – Institutional Occupancies – Non-Compliant OFC Information provided by the Township indicates that all Group B – Institutional Occupancies are currently in compliance with the OFC. The care and detention centers classified within this occupancy classification can present unique challenges in the event of a fire. Utilizing the “first line of defence” including pro-active fire prevention and public education programming in addition to a regular fire inspection program to sustain compliance with the OFC is an effective strategy in managing this risk.

Group C – Residential Occupancies – Vulnerable Demographics There are a number of properties where vulnerable occupants reside either in residential or institutional occupancies (Maple Heights Seniors Facility, Nith Terrace Seniors, Hincks St. Apartments, Shooters Complex, Carmel Monastery, Campgrounds and Vesper Springs). Although these buildings are currently compliant with the OFC the profile recognizes that this demographic of the population is by experience at higher risk in the event of a fire. Utilizing the “first line of defence” including pro-active fire prevention and public education programming in addition to a regular fire inspection program to sustain compliance with the OFC is an effective strategy in managing this risk.

Group D – Commercial Occupancies – Fuel Load High Risk Information provided by the Township indicates that all Group D - Commercial Occupancies are currently in compliance with the OFC. Group E – Mercantile Occupancies – Non-Compliant OFC Information provided by the Township indicates that all Group E - Mercantile Occupancies are currently in compliance with the OFC. Group F – Industrial Occupancies – Non-Compliant OFC Information provided by the Township indicates that all Group F - Industrial Occupancies are currently in compliance with the OFC. The Alpine Plant Foods building (Nafziger Road) has been identified as a high risk location should a fire occur in this building. A fire at this location would involve hazardous materials, with the potential for a release of anhydrous ammonia. For this reason this property should be considered high risk (RL-3). As a high risk property site specific emergency response protocols have been developed, in cooperation with the fire department.

A6.5 Township of Wilmot Risk Evaluation Table 20 presents the completed risk evaluation for the Township of Wilmot. The evaluation utilizes the methodology described above following the framework of the OFM Fire Risk Sub-model.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

The risk evaluation summary incorporates all community risk factors within the Township of Wilmot for each major occupancy classification. The summary identifies that the Township has no extreme risk occupancies. Institutional occupancies were assigned high risk. This should be reflected in the departmentâ&#x20AC;&#x2122;s fire prevention and public education program planning. Assembly and residential occupancies are identified as moderate level risks. If, however, any buildings under this occupancy are non-compliant, they may be considered high risk. This would apply specifically to higher density residential units or assembly occupancies. Another consideration would be residential buildings which specifically house higher risk age-groups (e.g. seniors or vulnerable persons), which should be given a higher priority for programming based on increased risk. Business and mercantile occupancies in Wilmot represent a low risk.

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Township of Wilmot Fire Master Plan - Appendix A December 2012

Table 20: Risk Evaluation Summary Community Risk Profile Factors Weight Factor

Property

Building Building

Building

Demographic

Stock

Height

Age

Exposures

Profile

1

2

3

1

3

OBC Major Occupancy Classification

Geography

Past

Fuel

Prob. Cons.

Topography Fire Loss Load Level Level 1

3

2

Priority

Risk

Level

Level

Risk Level Assessment

Group A

Assembly

3

2

3

2

4

2

1

2

2.4

3

7.2

RL-2

Group B

Institutional

4

3

4

3

5

3

1

3

3.2

4

12.8

RL-3

Group C

Residential

4

2

3

3

5

2

3

2

3.1

3

9.3

RL-2

Group D

Business

3

2

3

4

2

2

1

3

2.3

2

4.6

RL-1

Group E

Mercantile

3

2

3

4

2

2

1

3

2.3

2

4.6

RL-1

Group F

Industrial

3

2

2

2

2

2

2

4

2.3

2

4.6

RL-1

2

1

1

1

2

2

1

1

1.3

2

2.6

RL-1

Mobile Homes & Trailers

Probability: 1 – Rare 2 – Unlikely 3 – Possible 4 – Likely 5 – Almost Certain

X

Consequence Level: 1 – Insignificant 2 – Minor 3 – Moderate 4 – Major 5 - Catastrophic

=

Priority Level 0 to 6.2 = Low 6.3 to 12.5 = Moderate 12.6 to 18.7 = High 18.8 to 25.0 = Extreme

Detailed Community Risk Assessment Page – A-37

= = = =

Risk Level RL-1 – Low Risk RL-2 – Moderate Risk RL-3 – High Risk RL-4 – Extreme Risk

Township of Wilmot Fire Master Plan - Appendix A December 2012

A6.6 TOWNSHIP OF WILMOT RISK MODEL A6.6.1

Methodology

This section provides a brief outline of the scope and methodology used in order to provide insight into the modeling procedures adopted to assess Township risk. A Geographic Information Systems (GIS) model was developed to assess risk based on historic call locations, risk geography, land use, the department’s existing and predicted emergency response travel times relate to these risks, and the Fire Risk Sub-Model (form 100).

The basis of the GIS risk model is to develop geographical risk zones that represent areas of low, moderate, high and extreme risk categories based on land use. The Township’s existing land use zoning was used to determine the boundaries and building occupancies associated with each zone.

Subsequently, all building located in areas outside of the Township’s official land use zoning were identified using a buildings shapefile provided by the Ministry of Natural Resources. The shapefile displays the buildings as points, thus each point/building was given a 100m buffer in order to approximate the building along with its corresponding property. All remaining un-zoned areas were given a land use classification of open space. Next, building occupancies were assigned to their associated land use in order to determine the base risk category (assumes that all buildings are in compliance). The base risk zones associated with each occupancy category are listed in Table 21. Finally, several occupancies had their risk levels up-graded or down-graded based on the Fire Risk Sub-Model (form 100).

Table 21: Base Risk Zone Category by Occupancy Occupancy Definition Fire Risk Sub-model (OFM)

Base Risk Zone Category Assigned

Assembly occupancies

moderate

Group B - Institutional Institutional

Care or Detention occupancies

high

Group C - Residential Residential

Residential occupancies

moderate

Business and Personal Services Occupancies

moderate

Mercantile occupancies

moderate

Occupancy Classification (OBC) Group A – Assembly Assembly

Group D - Business Group E - Mercantile Group F1 - Industrial

low

Group F2 - Industrial

moderate Industrial occupancies

Group F3 - Industrial

Other occupancies

high

Not classified within the Ontario Building Code (i.e. farm buildings)

Detailed Community Risk Assessment Page – A-38

low

Township of Wilmot Fire Master Plan - Appendix A December 2012

A6.6.2

Existing Risk and Response (Call Locations)

The existing risk zones and existing emergency response are presented in Figure 5. This figure depicts historic call data from 2007 and 2011 overlaid onto the existing risk zones represented in the model. These calls were colour coded according to travel time. Calculations were carried out to estimate the number of calls within each risk zone category and the travel time associated.

From the calculations table, 100% of high risk calls were responded to in four minutes or less of travel time. The table also indicates that 62% of the moderate risk calls were responded to in four minutes or less of travel time. Eighty-two percent of moderate risk calls were responded to in eight minutes travel time or less and 87% of moderate risk calls were responded to in ten minutes of travel time or less. This also shows that 54% of the low risk calls were responded to in four minutes or less of travel time, 88% in eight minutes of travel time or less and 93% in ten minutes of travel time or less. This indicates that based on where the majority of the calls occur the department is able to respond in a timely manner.

A6.6.3

Existing Risk and Response (Township Geography)

The GIS model was used to approximate existing geographic coverage of the existing risk zone areas. The existing station locations were represented in this scenario, shown in Figure.5.

Travel times were estimated according to road network distance from the stations, with the travel speeds based on the actual posted speed limit of the road. These assumed travel speeds (in minutes) are represented by the road network buffers surrounding the fire stations. The calculations indicate the percentage of the various risk zone categories that fall within the estimated travel time buffer. In this figure, 100% of the high risk geography, 38% of the moderate risk geography and 24% of the low risk geography is covered within four minutes of predicted travel time. This scenario also resulted in 92% of the moderate risk zones and 90% of the low risk zones being covered within the ten minute predicted travel time.

Detailed Community Risk Assessment Page â&#x20AC;&#x201C; A-39

Existing Stations

Travel | % of Low | % of Moderate | % of High Time | Risk Calls| Risk Calls | Risk Calls -------+-----------|---------------|-----------4 min | 54% | 62% | 100% 5 min | 67% | 68% | 100% 6 min | 74% | 73% | 100% 7 min | 80% | 77% | 100% 8 min | 88% | 82% | 100% 9 min | 91% | 86% | 100% 10 min | 93% | 87% | 100% Note: There are no extreme risk zones within the Township of Wilmot

TOWNSHIP OF WILMOT FIRE MASTER PLAN

RISK ANALYSIS FIGURE # 5

!>

Existing Fire Station

Travel Times <= 4 minutes

Station 1 Baden

4 - 5 minutes 5 - 6 minutes 6 - 7 minutes 7 - 8 minutes

!>

8 - 9 minutes 9 - 10 minutes > 10 minutes Low Risk Moderate Risk High Risk

!>

Extreme Risk

Station 3 New Hamburg

!>

Station 2 New Dundee

0

0.5

1

2 km

SCALE 1:80,000

²

MAP DRAWING INFORMATION: DATA PROVIDED BY MNR MAP CREATED BY: JJA MAP CHECKED BY: SC MAP PROJECTION: NAD 1983 UTM Zone 17N

FILE LOCATION: I:\GIS\126148 - Wilmot FMP\Mapping\Wilmot_RiskModel_Calls.mxd

PROJECT: 12-6148

FINAL STATUS: DRAFT DATE: 07/20/12

Existing Stations | % Covered Travel Time | Low Risk | Moderate Risk | High Risk ------------|----------|---------------|---------4 min | 24% | 38% | 100% 5 min | 38% | 49% | 100% 6 min | 54% | 62% | 100% 7 min | 69% | 73% | 100% 8 min | 78% | 82% | 100% 9 min | 85% | 88% | 100% 10 min | 90% | 92% | 100% Note: There are no extreme risk zones within the Township of Wilmot

TOWNSHIP OF WILMOT FIRE MASTER PLAN

RISK ANALYSIS FIGURE # 6

!>

Existing Fire Station

Travel Times 4 min @ Network Speed

Station 1 Baden

5 min @ Network Speed 6 min @ Network Speed 7 min @ Network Speed 8 min @ Network Speed

!>

9 min @ Network Speed 10 min @ Network Speed Low Risk Moderate Risk High Risk

!>

Extreme Risk

Station 3 New Hamburg

!>

Station 2 New Dundee

0

0.5

1

2 km

SCALE 1:80,000

²

MAP DRAWING INFORMATION: DATA PROVIDED BY MNR MAP CREATED BY: JJA MAP CHECKED BY: SC MAP PROJECTION: NAD 1983 UTM Zone 17N

FILE LOCATION: I:\GIS\126148 - Wilmot FMP\Mapping\Wilmot_RiskModel.mxd

PROJECT: 12-6148

FINAL STATUS: DRAFT DATE: 07/20/12

Fire Master Plan Township of Wilmot December 2012

APPENDIX B Fire Suppression Performance Targets

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Table of Contents Page BI.

Fire Suppression Performance Factors..................................................................................... B-1 BI.1

Importance of Time with Respect to Fire Growth........................................................ B-1

BI.2

Total Response Time .................................................................................................. B-3

BI.3

Initial Response .......................................................................................................... B-3

BI.4

Depth of Response ..................................................................................................... B-4

BI.5

OFM Public Fire Safety Guidelines ............................................................................ B-5

BI.6

National Fire Protection Association (NFPA) 1710 Standard ...................................... B-5

BI.7

National Fire Protection Association (NFPA) 1720 Standard ...................................... B-7

BI.8

Comparison of Emergency Response Performance Measures ...................................... B-8

BI.9

Summary of Fire Suppression Performance Targets .................................................... B-9

List of Figures Figure B1: OFM Fire Progression Curve............................................................................................. B-2 Figure B2: First Response Fire Scene Responsibilities ........................................................................ B-4 Figure B3: Depth of Response Fire Scene Responsibilities.................................................................. B-7

List of Tables Table B1: Fire Growth Rates as Defined by Society of Fire Protection Engineers................................ B-1 Table B2: NFPA 1720 ........................................................................................................................ B-8 Table B3: Comparison to the Typical Fire Risk Scenario .................................................................... B-9

Fire Suppression Performance Factors Page B-i

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

BI. FIRE SUPPRESSION PERFORMANCE FACTORS There are a number of variables to be considered by a municipal council in understanding and determining an appropriate service level for fire suppression. The variables include the type of risk (Community Risk Profile) the total response time (dispatch time, activation / turnout time, and travel time) the number of firefighters required (initial response and depth of response) and the measurement objective (the percentage of incidents that would meet an assigned objective).

The Community Risk Profile included within this study (Appendix B) presents a comprehensive analysis for determining fire risk, and assigning fire risk based the Ontario Building Code Major Occupancy Classifications.

For comparison purposes this study utilizes the benchmark of a fire in a 2000 square foot, two-storey single-family dwelling, without a basement and with no exposures present. This example represents a typical home of wood frame construction located in a suburban neighbourhood having access to a municipal water supply (fire hydrants). This occupancy would be classified as a Group C - Residential Occupancy (moderate risk level).

To determine a recommended fire suppression performance target this study will assess the current guidelines and standards that are being utilized by the Ontario fire service in comparison to this benchmark fire risk scenario.

BI.1 Importance of Time with Respect to Fire Growth Time is a critical component with respect to the growth of a fire and the success of intervention by firefighters. Research conducted by the OFM and National Research Council of Canada indicates that a fire in a non-sprinklered residential occupancy (typical fire risk scenario) can spread from the room where the fire originates in ten minutes or less. Tests have shown that the fire can extend from this room of origin in as little as three minutes, under fast fire growth conditions.

Fire growth rates, defined by the Society of Fire Protection Engineers, as slow, medium and fast are listed in Table B1: Fire Growth Rates as Defined by Society of Fire Protection Engineers. The fire growth rates are measured by the time it takes for a fire to reach a 1 megawatt (MW) fire. This is roughly equivalent to an upholstered chair burning at its peak. A 2 MW fire is approximately equal to a large upholstered sofa burning at its peak.

Table B1: Fire Growth Rates as Defined by Society of Fire Protection Engineers Time to Reach 1 MW and 2 MW Fire Growth Rates in the Absence of Fire Suppression Fire Growth Rate

Time in Seconds to

Time in Seconds to

Reach 1MW

Reach 2 MW

Slow

600 seconds

848 seconds

Medium

300 seconds

424 seconds

Fast

150 seconds

212 seconds

Source: Office of the Fire Marshal, Ontario, â&#x20AC;&#x2DC;Operational Planning: An Official Guide to Matching Resource Deployment and Riskâ&#x20AC;&#x2122;, January 7, 2011 (www.ofm.gov.on.ca)

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Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Within this ten minute time period flashover conditions can occur. Flashover occurs when the combustible items within a given space reach a temperature that is sufficiently high for them to autoignite. The graph in Figure B1 highlights the importance of firefighting intervention, given the exponential increase in fire temperature, and the potential for loss of property/loss of life with the progression of time (Courtesy of the Office of the Fire Marshal, Ontario).

Figure B1: OFM Fire Progression Curve

The fire progression curve reflects the importance of time during the “detection – report” stage. This is the time period not impacted by any actions by the fire department. The time period controlled by the fire department begins when the call is initially received by “dispatch” and includes several other components leading up to the initiation of “intervention” by fire suppression staff.

Understanding factors such as “growth rate” and “time’ in terms of how quickly a fire can reach a critical stage such as “flashover” are important considerations in assessing fire suppression performance targets.

For example, where areas of the community may have extended response times due to long travel distances, in excess of 10 minutes, the potential for the fire to have spread from the room of origin, and or already reached a “flashover” state, will be significantly higher.

In these situations consideration should be given to the first two “lines of defence” including the provision of more public education and fire prevention activities as a means to inform the public on how to be prepared.

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Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

BI.2 Total Response Time Measuring the total response time to an emergency call can be defined by three primary components: dispatch time, turnout time, travel time. Together these components make up the total response time it takes for a fire and emergency service to receive a call either from someone at the scene of with knowledge of the fire, identify the location of the emergency and dispatch appropriate vehicles and staff, travel to the scene of the incident, and set up to begin fire suppression activities. The common definitions of these four components are: 1. Dispatch Time: The time that it takes for the person responsible for “alarm answering”, and “alarm processing” to be able to receive the call, and dispatch the appropriate apparatus and staff to respond to the emergency.

2. Turnout Time: The time interval that begins from when the emergency response staff receives the required dispatch notification, and ends at the beginning point of travel time.

3. Travel Time: The travel time interval begins when the assigned emergency response apparatus begins the en-route travel to the emergency, and ends when the apparatus arrives at the scene.

One of the important factors to recognize with regard to these times is when the responding fire department begins to take “care and control” of the incident. Within PFSG 04-08-12 the OFM describes this as “Once notified of an emergency, your department accepts its “care and control”. If your department handles its own call-taking and dispatching, you can see that you have care and control right from the earliest moment, when the emergency was reported. But if you hire a call-taking or dispatching or both, you do not accept care and control until sometime later. Nevertheless, the fire department has responsibility for ensuring that hired agencies manage call-taking and dispatching effectively, and in accordance with establishes protocols”.

BI.3 Initial Response Initial response can be defined as the number of firefighters initially responding to an incident. Identifying the number of firefighters required on the initial response has been the focus of much debate within the fire service industry for many years. More recently there has been a significant shift by fire service leaders and professional standard setting bodies to recommending that an initial response of four firefighters should be considered the minimum.

It has been acknowledged by fire service leaders and professional standard setting bodies that until a minimum of four firefighters have assembled at a fire scene, there are not sufficient firefighters on scene to safely initiate or make entry into the building to commence the rescue of occupants, or initiate interior fire suppression operations. If fewer than four firefighters arrive on scene, they must wait until a second vehicle, or additional firefighters arrive to have sufficient staff to commence these activities.

An initial response of four firefighters once assembled on the scene is typically assigned the following operational functions. The Officer in charge shall assume the role of Incident Command; one firefighter shall be designated as the pump operator; one firefighter shall complete the task of making the fire hydrant connection; and the fourth firefighter shall prepare an initial fire attack line for operation.

Under the direction of the Incident Commander the initial response crew then has the option of initiating limited search and rescue (i.e. looking for trapped persons immediately inside doorways or windows) or beginning limited firefighting using two firefighters for either task.

Fire scene responsibilities are highlighted in Figure B2 below.

Fire Suppression Performance Factors Page B-3

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Figure B2: First Response Fire Scene Responsibilities

(Office of the Fire Marshal, Ontario, Prior to November 2010).

BI.4 Depth of Response In comparison to the Initial Response the depth of response relates to the “total” number of firefighters initially assigned to an incident. Depth of response is also commonly referred to as “First Alarm” or “Full Response”. For example NFPA 1710 defines “Initial Full Alarm Assignment” as “Those personnel, equipment, and resources ordinarily dispatched upon notification of a structure fire”.

It is very important to recognise that depth of response is referring to the “total” number of firefighters initially assigned to an incident. The total number of firefighters assigned to an incident can vary based on the type of occupancy and the level of risk present. Fires involving occupancies that have been assigned a higher level of risk such as high, or extreme may require a higher number of firefighters as part of the initial depth of response. This can be achieved in many ways such as dispatching of additional resources or the use of Fire Protection Agreements (Automatic Aid Agreements).

In comparison to best practices within the industry that recognise four firefighters as the appropriate level of resources for the initial response, determining best practices for depth of response has a number of variables to be considered.

Depth of response is assessed below for the OFM guidelines and the NFPA standards in comparison to the typical fire risk scenario presented.

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Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

BI.5 OFM Public Fire Safety Guidelines As identified in the Fire Protection and Prevention Act, 1997, the Office of the Fire Marshal, Ontario (OFM) has the power to issue guidelines to municipalities with respect to fire protection services and related matters. These Public Fire Service Guidelines (PFSG) are to be used by local municipalities to determine the level of fire protection services they determine may be necessary, in accordance with their particular needs and circumstances.

PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk was released by the OFM in January 2011. Utilizing the risk evaluation and determination process identified with the Fire Risk Sub-model this PFSG contains a “Critical Task Matrix”. The matrix is defined by the OFM as “The critical Task Matrix is based on the Incident Management System (IMS). It will assist in identifying fireground staffing capabilities based upon low, moderate, high and extreme risk levels within your community. The Office of the Fire Marshal (OFM) has identified the critical tasks from the Incident Management System that are used during fireground operations. These tasks are consistent with applicable legislation, industry best practices and the Ontario Fire College Curriculum”.

The Critical Task Matrix provides a lower and upper range of the number of firefighters required to respond for each of the four risk levels. The actual number of firefighters within each range is based upon analysis of actual fires, the Occupational Health and Safety Act Section 21 Guidance Notes affecting firefighters, and industry best practices.

The Critical Task Matrix identifies a range of 16 to 43 firefighters that would be required to respond to a moderate level risk that is comparable to the typical fire risk scenario presented above. The matrix recognises that the actual number of firefighters required may vary depending on the fire risk that exists and the tasks that are assigned by the Incident Commander on the scene. The matrix does not specify the number of firefighters recommended for an initial response, it only looks at the suggested depth of response resources.

The matrix for the fire risk scenario presented (moderate risk) suggests a firefighter is required for both “Water Supply – pressurized” as well as “Water Supply – non –pressurized”. As the fire risk scenario identifies a municipal water supply with fire hydrants is available only one of these firefighters would be required based on the lower range level of sixteen.

The matrix also identifies that “Utilities” would require a firefighter for this fire risk scenario. In our experience this is a function that can be coordinated by the Incident Commander either by the multitasking of other firefighters on scene, or alternatively by utilizing staff from the agencies directly responsible for the utilities to mitigate any issues.

Modifying the lower level of the moderate risk range by reducing the number of firefighters by two; and revising these two tasks would suggest that a minimum response of fourteen firefighters responding to the fire risk scenario presented within this study would be an acceptable minimum performance target.

BI.6 National Fire Protection Association (NFPA) 1710 Standard The National Fire Protection Association (NFPA) is an international non-profit organization that was established in 1896. The company’s mission is to reduce the worldwide burden of fire and other hazards on the quality of life by providing and advocating consensus codes and standards, research, training, and education. With a membership that includes more than 70,000 individuals from nearly 100 nations NFPA is recognised as one of the world's leading advocates of fire prevention and an authoritative source on public safety.

NFPA is responsible for 300 codes and standards that are designed to minimize the risk and effects of fire by establishing criteria for building, processing, design, service, and installation in the United States, as Fire Suppression Performance Factors Page B-5

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

well as many other countries. Its more than 200 technical code and standard development committees are comprised of over 6,000 volunteer seats. Volunteers vote on proposals and revisions in a process that is accredited by the American National Standards Institute (ANSI).

NFPA 1710 “Standard for the Organization and Deployment of Fire suppression Operations, Emergency medical Operations, and Special Operations to the Public by Career Fire Departments” provides a resource for determining and evaluating the number of career firefighters required based upon recognised industry best practices.

NFPA 1710 is a standard that is designed for larger municipalities that as a result of many factors are operating their fire department utilizing substantially career firefighters. Relevant references from NFPA 1710 include the following: This standard applies to the deployment of resources by a fire department to emergency situations when operations can be implemented to save lives and property.

The standard is a benchmark for most common responses and a platform for developing the appropriate plan for deployment of resources for fires in higher hazard occupancies or more complex incidents.

The NFPA references support the strategic priority of saving lives and property, as well as recognising the standard as a “benchmark” for determining the appropriate level of resources based on the complexity and level of risk present.

The NFPA 1710 standard for the initial response of four firefighters is widely accepted as the minimum initial response and best practice within the industry. The NFPA 1710 standard for depth of response to the same typical fire risk scenario is fourteen firefighters, fifteen if an aerial device is to be used. The NFPA 1710 fire scene responsibilities for depth of response including an aerial are highlighted in Figure B3.

Fire Suppression Performance Factors Page B-6

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Figure B3: Depth of Response Fire Scene Responsibilities

BI.7 National Fire Protection Association (NFPA) 1720 Standard NFPA 1720 “Standard for the Organization and Deployment of Fire suppression Operations, Emergency medical Operations, and Special Operations to the Public by Volunteer Fire Departments” provides a resource for determining and evaluating the number of volunteer firefighters required based upon recognised industry best practices.

The NFPA 1720 standard further supports the minimum initial response staffing to include four firefighters including “Initial firefighting operations shall be organized to ensure that at least four fire fighters are assembled before interior fire suppression operations are initiated in a hazardous area”.

This particular standard further recognises that the four firefighters may not arrive on the same vehicle, but that there must be four on the scene prior to initiating any type of interior firefighting operations.

Within this standard the NFPA identifies five different categories described as “Demand Zones” that relate to the type of risk that may be found within a typical community; either by population density, travel distance, or special circumstances. The standard then identifies a minimum level of firefighters that would be recommended for each of these categories. Table B2 presents the NFPA minimum staffing levels by category.

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Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Table B2: NFPA 1720

Demographics

Minimum # of Firefighters Responding

Response Time (Turnout + Travel) in Minutes

>1000 people per square mile

15

9

Suburban Area

500-1000 people per square mile

10

10

Rural Area

<500 people per square mile

6

14

Remote Area

Travel Distance + or â&#x20AC;&#x201C; 8 miles

4

Dependent upon travel distance

Special Risks

To be determined by Fire Department

To be determined by Fire Department

Determined by Authority Having Jurisdiction

Demand Zones

Urban Area

The NFPA 1720 standard utilizes population density as a factor in evaluating the minimum number of firefighters recommended for depth of response. As a standard primarily for use by volunteer fire departments it recognises lower population densities are typically found in smaller communities in comparison to much higher population densities found in large urban centres.

BI.8 Comparison of Emergency Response Performance Measures In addition to the minimum staffing levels for the initial response and the depth of response, identifying options for performance targets (service levels) must also consider criteria for the overall response time and in terms of evaluation, the targeted percentage of achievement.

Table B3 provides the summary of the OFM PFSG 04-08-10 and NFPA 1710 & 1720 standards for initial response and depth of response to the typical fire risk scenario presented within this report. For this comparison travel time represents â&#x20AC;&#x153;The travel time interval begins when the assigned emergency response apparatus begins the en-route travel to the emergency, and ends when the apparatus arrives at the sceneâ&#x20AC;?. The objective represents the percentage of the total number of calls responded to by a fire department.

Fire Suppression Performance Factors Page B-8

Fire Master Plan - Appendix B Fire Suppression Performance Factors Township of Wilmot December 2012

Table B3: Comparison to the Typical Fire Risk Scenario Source

Initial Response

Travel Time

Depth of Response

Travel Time

Objective

OFM PFSG 04-08-10

---

---

**14 firefighters

---

---

NFPA 1710

4 firefighters

4 minutes

14 firefighters

8 minutes

90%

*NFPA 1720

4 firefighters

---

10 firefighters

10 minutes

80%

*NFPA 1720, suburban area, 500-1000 people per square mile ** This includes adjustments for water supply and external agencies

BI.9 Summary of Fire Suppression Performance Targets In our view the framework for identifying community risk and deploying sufficient firefighting resources to address the community risk present is accurately presented in PFSG 04-08-10 Operational Planning: An Official Guide to Matching Resource Deployment and Risk. Within these analyses of fire suppression performance factors we have included consideration of the staffing deployment of PFSG 04-08-12 as well as the relevant NFPA Standards.

For comparison purposes this assessment utilizes the example of a fire risk scenario in a 2000 square foot, two-story single-family dwelling without a basement and with no exposures present. This represents a typical home of wood frame construction located in a suburban neighbourhood having access to a municipal water supply including fire hydrants. Within this study this occupancy would be classified as a Group C - Residential Occupancy (moderate risk).

In our view best practices within the Ontario fire service to address firefighter health and safety, and the operational tasks associated with the fire risk scenario presented reflect a staff deployment of four firefighters arriving on the same apparatus or alternatively arriving on scene simultaneously for the initial response, and fourteen firefighters deployed for a depth of response.

For responses to fire risks with a high or extreme risk level additional firefighting staff deployment should be automatically dispatched. This can be achieved by deploying other apparatus, stations or through automatic aid and fire protection agreements with other communities.

Determining an appropriate travel time performance target for both the initial response and depth of response is the second major component of determining fire protection service levels. PFSG 04-08-12 does not contain a specific performance target for travel time in comparison to those in NFPA 1710 and 1720. Travel times for emergency response vehicles can be impacted by many factors such as traffic congestion, traffic management systems including traffic lights and stop signs, and extended travel times due to converge of large geographic areas.

In our view identifying a travel time target should include consideration of the overall community fire protection plan including optimization of the first two lines of defence. Emphasis should also be placed on the importance of time with respect to the potential of fire growth and extension form the area or room of origin. For example, the presence of residential sprinklers would have a positive effect on the control and containment of the fire and allow for consideration of extended travel times.

In summary, identifying travel time performance targets should be a decision considered by Council in response to the Community Fire Risk Profile, and community needs and circumstances as defined by the FPPA.

Fire Suppression Performance Factors Page B-9