Strathcona County Alberta Emergency Services Master Plan August SW Parkway Ave. Suite 3 Wilsonville Oregon

Transcription

1 Strathcona County Alberta Emergency Services Master Plan August SW Parkway Ave. Suite 3 Wilsonville Oregon

2 Strathcona County, Alberta Emergency Services Master Plan 2011/2012 Prepared by: Kent Greene Phil Kouwe Jim Kay Mike Price

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4 Acknowledgements Emergency Services Consulting International would like to thank the following individuals and groups without whom the project would not have been possible. Strathcona County Linda Osinchuk, Mayor Vic Bidzinski, Ward 1 Councillor Roxanne Carr, Ward 2 Councillor Brian Botterill, Ward 3 Councillor Peter Wlodarczak, Ward 4 Councillor Clinton Alexander, Ward 5 Councillor Linton Delainey, Ward 6 Councillor Bonnie Riddell, Ward 7 Councillor Jason Gariepy, Ward 8 Councillor Robyn Singleton, Chief Commissioner Denise Exton, Associate Commissioner Strathcona County Emergency Services Darrell Reid, Fire Chief and Director of Emergency Services Bob Davidson, Deputy Chief Community Safety and Emergency Communications Iain Bushell, Deputy Chief Operations Vern Elliott, Deputy Chief Human Resources and Logistics Dawn Hemming, Assistant Chief Business Operations Mark Eckley, Assistant Chief Emergency Management Michele Wilson, Administrative Assistant Page i

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6 Table of Contents Table of Figures... v Executive Summary...1 Section I: Evaluation of Current Conditions Organization Overview Service Area Population and Demographics History, Formation and General Description Governance, Organizational Design, and Lines of Authority Budget and Finance Management Components Mission, Vision, and Strategic Planning Internal Assessment of Critical Issues Internal and External Communications Processes Recordkeeping Document Control and Security Information Technology Systems Capital Assets and Capital Improvement Programs Facilities Apparatus Staffing and Personnel Management Administrative and Support Staff Operational Staffing Staff Allocation Staff Scheduling Responsibilities and Activity Levels of Personnel Counselling Services Application, Recruitment and Retention Testing, Measurement and Promotion Processes Health and Wellness Programs Service Delivery and Performance Demand Distribution Concentration Reliability Response Performance Wildfire Response and Impact High-Rise Impact Incident Control and Management Water Supply Support Programs Training Systems Fire Prevention and Life Safety Services Communications Materials Management Page iii

7 Emergency Medical Services Support and Oversight Materials Management Medical Control and Oversight Quality Assurance/Quality Management Programs Emergency Management Programs Emergency Operations Planning Emergency Operations Center Facilities Tactical Communications Plans External Participation Hazard Mitigation Planning Section II: Future Service Demand Projections Current Population Information Population Growth Projections Community Risk Analysis Service Demand Projections Section III: Future Delivery System Models Development of Response Standards and Targets Recommended Long-Term Strategies Facilities Apparatus Staffing Short and Mid-Term Strategies Conclusion Page iv

8 Table of Figures Figure 1: Service Area Overview Figure 2: Population and Growth Rate, Figure 3: Population Age Distribution Figure 4: Capital Equipment Benchmark Comparison Figure 5: Total Fire Protection Budget Distribution Figure 6: Service Fee and Contract Distribution Figure 7: Summary of Internal and External Communications Components Figure 8: Summary of Recordkeeping, Document Control, and Security Measures Figure 9: Summary of Information Technology Components Figure 10: Administrative and Support Permanent Positions Figure 11: Operations Complement Figure 12: Career Firefighters per 1,000 Population Figure 13: Part-Time Employment Eligibility Areas Figure 14: Summary of Personnel Management Components Figure 15: Service Demand by Major Category, Figure 16: Structure Fires, Figure 17: Service Demand by Month, Figure 18: Service Demand by Day of Week, Figure 19: Service Demand by Hour of Day, Figure 20: Unit Hour Utilization by Year, Figure 21: Geographic Service Demand Figure 22: Geographic Service Demand - Medical/Rescue Incidents Figure 23: Geographic Service Demand - Structure Fires Figure 24: Travel Time Capability Area, Current Deployment Figure 25: Travel Time Capability Area, With Station Figure 26: Travel Time Capability Area, With Stations 6 and Figure 27: Effective Response Force Assembly - Apparatus Figure 28: Effective Response Force Assembly Apparatus (Detail) Figure 29: Effective Response Force Assembly Apparatus with Station Figure 30: Effective Response Force Assembly Apparatus with Station 6 (Detail) Figure 31: Effective Response Force Assembly Apparatus with Stations 6 and Figure 32: Effective Response Force Assembly Apparatus with Stations 6 and 7 (Detail) Figure 33: Average Hospital Turn-Around Time, Figure 34: Average Out-of-Service (Commit) Time per Incident, Figure 35: Average and 90 th Percentile Turnout Time Performance, Figure 36: Average and 90 th Percentile First Unit Arrival Response Performance, Figure 37: Average and 90 th Percentile Response Performance by Response Zone Fire Responses Figure 38: Average and 90 th Percentile Response Performance by Response Zone Medical Responses Figure 39: Average and 90 th Percentile Dispatch to Patient Contact Response Performance, Figure 40: Average and 90 th Percentile Dispatch to Patient Contact Performance by Response Zone, Figure 41: 90 th Percentile Urban and Rural Dispatch to Patient Contact Trend Page v

9 Figure 42: Summary of Incident Management Components Figure 43: Sample Tanker Shuttle Capability Calculations Figure 44: Summary of Training Components Provided Figure 45: Training Program Budget and Staffing Figure 46: Occupancy Classifications Figure 47: Inspection Program Descriptions and Frequencies Figure 48: Occupancy Hazard Classifications Figure 49: Fire Prevention and Life Safety Education Staffing Figure 50: Summary of Communications Elements Figure 51: Comparison of Dispatch Centers - Staffing to Service Demand Figure 52: AHS Zone Map Figure 53: Population by Age, Figure 54: Select Housing Characteristics Figure 55: Population Forecast Figure 56: Community Land Use Assessment Figure 57: Population Density Figure 58: Total Workload Forecast Figure 59: Response Performance Objective Recommendations Figure 60: Closest Unit Response From Existing Stations Figure 61: Closest Unit Response From Existing Stations plus Station Figure 62: Travel Time Capability - Station Figure 63: Sample Capital Replacement Plan Page vi

10 Executive Summary Emergency Services Consulting International (ESCI) was engaged by Strathcona County to conduct a comprehensive review of the delivery of fire protection, rescue, and emergency medical services to the community. This report serves as the culmination of that evaluation and provides a review of each component of Strathcona County Emergency Services (SCES) as well as details future service demand projections and strategies for service delivery to meet the needs of the community well into the future. The report begins with an overview and description of the community and the service delivery infrastructure currently utilized by SCES, as well as a summary of management components, finance, foundational policies and organizational structure. Strathcona County, Alberta, is a specialized municipality located in central Alberta to the east of the City of Edmonton. Strathcona County Emergency Services provides fire protection, rescue, hazardous materials, and emergency medical response services to the entirety of Strathcona County and is part of the provincial EMS system that can be utilized anywhere throughout the province but is primarily used within Strathcona County and the City of Edmonton. The primary service area is comprised of approximately 1,179 km 2 (455.2 mi 2 ). As of the 2011 municipal census, the population of the county was 92,490, making it the third largest municipality in Alberta behind Calgary and Edmonton and the 55 th largest municipality in Canada. The 2006 federal census estimated total population at 82,511. SCES is a standing department within the general government of Strathcona County. The primary mission of the department has been and will continue to be fire protection for the citizens and properties located within Strathcona County; but as the field has evolved, so have the ancillary missions of SCES. Today, the department is the sole provider of specialized rescue services within Strathcona County and is currently serving as a regional dispatch center responsible for over 86,000 dispatches throughout the capital region last calendar year. In 2009, the responsibility and oversight of emergency medical services (EMS) was assumed by the Province of Alberta and SCES serves as a contract provider to the Province. SCES provides fire, rescue, and EMS services from five permanent stations, only three of which are staffed on a continuous basis (one additional station is currently under construction, Station 6). Stations located within the more densely populated areas are staffed (Stations 1, 4, and 5) while those stations in the more remote areas (Stations 2 and 3) are utilized by on-call personnel on an asneeded basis. SCES uses a total of 25 primary response apparatus (including reserves). Page 1

11 Each station was toured and evaluated for access to the community, general size, condition, usability, and viability for future use. A detailed evaluation of each station is provided in the main body of this document. Each apparatus was also reviewed. Throughout the process of completing this project, many of the primary apparatus have been replaced with new vehicles and the overall fleet is currently in excellent condition. SCES employs career staff, supplemented by volunteers, to accomplish its mission and deliver services to the citizens of Strathcona County. This career staff is comprised of both administrative/support and operational personnel. One of the primary responsibilities of a fire department s administrative and support staff is to ensure that the operational entities have the ability and means to accomplish their duties on the emergency incident. Efficient and effective administration and support are critical to the department s success. Without sufficient oversight, planning, documentation, training, and maintenance, the operational entities of a fire department may fail any operational test. Additionally, like any other part of a fire department, administration and support require appropriate resources to function properly. Although there is no set guide to determine the appropriate ratio of administrative and support staff to total personnel, through ESCI s experience with emergency services agencies it is common to find ratios in the range of 10 to 15 percent for those agencies not providing transport EMS services. Those agencies that do provide transport EMS, however, tend to have higher ratios of administrative and support staff to total personnel. SCES s ratio of administrative and support staff to total personnel equals 18.5 percent. However, it should be noted that many fire departments are involved neither in emergency management nor emergency communications activities. These positions account for 17 FTEs (full-time equivalents) within the current system. Removing these positions from the overall total of administrative and support would result in a ratio of 13.1 percent, below the expected range for a department the size of SCES that provides transport EMS. The County should work with SCES to determine the appropriateness of an additional administrative support position as well as an accounting assistant to better support the functions of the department. It takes an adequate and well-trained staff of emergency responders to put the appropriate emergency apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an operational scene decreases the effectiveness of the response and increases the risk of injury to all individuals involved. The department has 151 career emergency response personnel plus approximately 50 parttime paid-on-call personnel that supplement the career staff. The population of SCES s area is Page 2

12 approximately 92,490. The ratio of firefighters per 1,000 population is 1.60 including all career personnel, which lies between the median (1.15) and high (1.93) comparison of similar departments across Canada. The remainder of the staffing and personnel management section reviewed areas such as staff allocation, scheduling, activity levels, counseling services, application, recruitment and retention, testing, measurement and promotional processes, and health and wellness programs. Recommendations for improved efficiency are provided where appropriate. A large portion of this report focuses on service delivery and performance since those are the primary areas by which a department can be measured. The components evaluated include demand, distribution, concentration, reliability, and historic response performance. Demand is defined as the workload experienced by an emergency services organization. This workload can be emergency and/or non-emergency depending on the mission of the organization. For SCES, most of the demand is related to EMS responses, as is common for agencies involved in the delivery of medical services. EMS workload has increased steadily over the past eight years of data evaluated reaching over 4,000 annual incidents in 2010, an increase of 62.4 percent over the data period. Meanwhile actual fires have increased 72.9 percent but have been much more variable over the period evaluated. Demand was also evaluated temporally; that is, by month, day and hour to identify any trends. Distribution evaluates the department s ability to provide service to the demand described above. As stated previously, SCES operates from five facilities distributed across Strathcona County. Three of these stations are staffed continuously with full-time personnel and the remaining stations are staffed with volunteer personnel on a per incident basis. There exists a certain extent of the jurisdiction that can be reached within a certain travel time from the stations regardless of staffing patterns. That is, once a unit is en route to an incident from the current station locations, there is a certain geographic area that can be covered within specific time periods. This is known as travel time. The intent of distribution analysis is to determine not only how much area can be covered from the existing stations within a certain amount of time, but also how much of the historic service demand can be covered within that time. The distribution analysis indicates that SCES can reach only 5.0 percent of the total land area within four minutes of travel and 38.8 percent in eight minutes of travel from the current station locations. It should be understood, however, that covering land area does not translate into covering potential service demand or population. The travel model indicates that SCES can reach 65.6 percent of the total service Page 3

13 demand in the primary response area within four minutes of travel and 93.9 percent in eight minutes of travel from the current station locations. With the addition of Station 6, this response performance will increase to 70.1 percent of service demand within four minutes of travel and 94.2 percent within eight minutes of travel. When Station 7 is added to the deployment model, overall response performance increases to 72.0 percent at four minutes and 94.4 percent at eight minutes. Although the percentage of service demand covered by the proposed Station 7 doesn t seem to be substantial, as the new hospital is brought on-line along with ancillary development to the north of Sherwood Park, service demand is expected to increase, which will be covered by Station 7. Concentration is an analysis of the department s ability to assemble an adequate amount of resources, either personnel and/or apparatus, within a sufficient amount of time to effectively mitigate specific incidents, particularly structure fires. Concentration analysis does not consider staffing patterns and only evaluates travel time as the primary factor. Stations 2 and 3, which are not staffed, are still included in the analysis as if staff were in-house ready for response. The analysis indicates that SCES should be able to assemble one Platoon Chief (BC), three engines, and one aerial apparatus within eight minutes within the area of highest service demand. This concentration increases with the addition of Station 6 and will continue to increase with the addition of the proposed Station 7. As the distance from the more populated area increases, the ability to concentrate apparatus decreases. Reliability is a measure of an organization s ability to respond to incidents occurring within its own jurisdiction without requiring external assistance. This is typically measured by evaluating the utilization of in-service units and comparing that against industry standards. Several factors can influence an organization s reliability, including service demand, distribution of resources, or for those services operating transport EMS units, hospital turn-around intervals. The average turn-around times for SCES resources show that the time that EMS units are spending at hospitals has doubled in the past six years. This trend is more than likely due to the increased usage of emergency departments by the general public for non-emergency conditions. This over-usage creates a back-up within the hospital system and requires EMS crews to wait longer to transfer care of their patients to hospital staff. This increased wait time decreases the department s overall reliability. Another way to measure reliability is to evaluate total out-of-service time or commit time. Evaluating commit time allows the analysis of unit hour utilization (UHU), an industry measure of how busy particular units tend to be. UHU analysis is typically meant as an economic indicator of how efficient Page 4

14 units within the system operate, but it allows organizations to evaluate the overall efficiency of the system, even outside the economic perspective. Only the transport ambulances are evaluated here because they tend to be the busiest units within a system and their overall commit time is typically much longer than a non-transport unit. As with hospital turn-around times, overall commit time has increased over the last six years to over 2.5 hours per incident. This translates to an average UHU of Recommended UHU targets for fire department units are around 0.20, with some studies indicating that significant employee burnout can occur with fire-based EMS units at around 0.30 unit hour utilization. Another factor to consider in the future is that once Station 6 is operational, there will be no reserve engine to be placed into service if one should need repairs or otherwise become non-functional. SCES should begin working to ensure that an adequate supply of reserve apparatus is available so as not to reduce the department s overall reliability in the future. The final component of the service delivery and performance review is that of response performance. Total response time is the amount of time a resident or business waits for an apparatus to arrive at the scene of an emergency beginning when they first call This process begins for the fire department once the appropriate unit is dispatched by the communications center. The period of time between dispatch and when a unit is en route to the incident is known as turnout or reflex time. NFPA 1710 (National Fire Protection Association Standard 1710) recommends that career fire departments be able to be en route to fire incidents within 80 seconds or within 60 seconds for medical incidents when measured at the 90 th percentile. SCES s 90 th percentile turnout time performance in 2010, although improved over previous years, is still greater than two minutes. The next phase of the response time continuum is the actual travel time. Although actual travel time was not measured for this study, the overall response from dispatch to first unit arrival was analyzed. For career fire departments, NFPA 1710 recommends that departments respond to fire incidents within 05:20 (5 minutes 20 seconds) or 05:00 for medical incidents. The analysis indicates a 90 th percentile response performance above NFPA recommendations in both the urban and rural areas of the County. ESCI also evaluated the support programs of the department including training systems, fire prevention and life safety services, communications and materials management. Recommendations for improved efficiency are provided for each of these programs. In addition to support programs, Emergency Medical Services (EMS) and Emergency Management (EM) were also evaluated. As stated previously, EMS is a Page 5

15 service of the province contracted to SCES. A brief overview of that contracted service is provided. Emergency Management is the function of preparing the community for natural and/or man-made disasters. This program was evaluated and recommendations for improved efficiency provided where appropriate. Section II of the report focuses on future service demand projections. The process of forecasting growth within the community begins with an overview of current demographic and risk categories. According to the 2011 federal census estimates, the estimated population of Strathcona County was 92,490 persons. This represents an overall increase of 12.1 percent since the 2006 census when a population of 82,511 was recorded. The average annual growth rate this decade has been 4.2 percent. How this population is composed by age group can have a significant effect upon the fire service. Approximately 8.6 percent of the population is 65 years of age or older and 6.2 percent of the population is under 5 years of age, placing a total of 14.8 percent of the area s population within the significant target age groups that pose the highest risk for fatalities in residential fire incidents and typically generate higher levels of medical incident service demand. Numerous rentals and vacancies can signal economic conditions that correlate with higher rates of emergency incidents. The area s high level of owner-occupied housing indicates a stable economic environment that would tend to decrease overall demand for emergency services. Available census information does not indicate the number of vacant properties; but based on the high rate of owner occupation, one could assume that the vacancy rate for Strathcona County would be extremely low. The population within Strathcona County has grown steadily throughout the last decade. Local planning officials anticipate that additional growth may continue throughout the region at a similar rate as previously experienced. Since it is known that the service demand for emergency agencies is based almost entirely on human activity, it is important to have a population-based projection of the future size of the community. Planning should begin now to maintain the resources needed to meet the continuing demand for services throughout Strathcona County. In addition to gross population, ESCI evaluated the population density of Strathcona County as well as land use to evaluate potential risk within the community. Maps and descriptions of the community risk are contained within the body of the report. In evaluating deployment of facilities, resources, and staffing, it is imperative that consideration be given to potential changes in workload that could directly affect such deployment. Any changes in service Page 6

16 demand can require changes and adjustments in the deployment of staff and resources in order to maintain acceptable levels of performance. For purposes of this study, ESCI utilized population projections obtained through Statistics Canada and multiplied these by a forecasted incident rate derived from historic incident per capita rates to identify workload potential through the year The increase in actual fire incidents is forecast to be relatively low during the study period, a reflection of trends for fire incident rates per capita and believed to be a result of improvements made in building codes and public fire education during the last several decades. EMS is expected to continue to be a predominate factor in service demand while other emergency service calls not involving actual fires are forecast to increase, in part due to the use of automatic alarm and water flow systems. Although not reflected here since these projections are based on historical data, the opening of Strathcona Community Hospital (SCH) is expected to cause a significant increase in overall EMS service demand for SCES. This is due to a variety of factors. As the closest hospital for much of Strathcona County, a large percentage of EMS patients from within the county will be transported to the new facility. Those that are ill or injured to a level that exceeds the capabilities of SCH will require transport into Edmonton. This same scenario is true for patients that are transported by other regional providers. Information received from the Province suggests that the SCES transport volume could triple during the first year SCH is open. This will have a substantial impact on the overall service delivery capabilities of SCES. The report concludes with an analysis of future delivery system models intended to assist the department in preparing for future community growth and increased service demand. This section identifies strategies and recommendations for future resource deployment changes that would maintain or improve the department s response capabilities and performance as growth and development continue at the projected levels. This process begins with the establishment of formal response performance objectives based on the population density within the various areas throughout Strathcona County. The process of setting response time performance objectives will include two primary considerations: 1. What are the expectations of the community in regard to initial response time of the fire department to an emergency incident? What is the public s perception of quality emergency service where response time is concerned? 2. What response time performance would be reasonable and effective in containing fire, reducing damage, and saving lives when considering the types of incidents and fire risks faced by Strathcona County? Page 7

17 Based on current facility distribution, the rural areas of Strathcona County will experience longer response times from the current stations. Those residents living in the rural areas are currently served by volunteer or paid-on-call personnel, which must respond to one of the volunteer stations (Stations 2 and 3) from work or home in order to respond an apparatus to the scene of an emergency. These resources are supplemented by career personnel that respond from stations within Sherwood Park. Therefore, as a component of future planning for emergency services within Strathcona County, ESCI is providing information regarding any advantages or disadvantages to adding volunteer stations or placing career personnel within existing volunteer stations. In order for a community to support a volunteer or paid-on-call system for fire protection, the demographics and population of the community must first be analyzed. In addition, an evaluation must be conducted on the amount of service demand that has been experienced within a given area. Volunteerism in general has declined across North America over the last decade and that trend is expected to continue. Further, communities that are rapidly developing tend to have a lower percentage of volunteerism as residents move away from urban areas. Often, suburban residents enjoy the lower population densities of their suburban community but routinely expect an urban level of service, particularly if they have relocated from an urban area. Currently, the Ardrossan community (Station 3) provides supplemental volunteer personnel to SCES and is able to support that function through legacy residents that have a tradition of volunteerism. Current service demand within that area is low but expected development may lead to an increase in call volume. SCES should work with planning officials to determine the forecasted population of future development and use that information to determine if the placement of career personnel in Station 3 would be advisable. Station 2 is located in an area with little in the way of population density and serves a very low demand. No significant future development is expected around Station 2 and the current volunteers are able to supplement SCES staff sufficiently. Adding career personnel to Station 2 would not be considered fiscally prudent for the foreseeable future. The last element of providing fire protection to the rural areas is that of additional stations, either volunteer or career. As previously noted, placing a volunteer station in an area without a significant population density or community center is unlikely to be sustainable. In addition, service demand in the rural areas outside current station locations is such that the placement of career personnel in new stations would be cost prohibitive. Therefore, no additional stations are recommended in the rural areas. Page 8

18 The other areas of long-term investment that will impact SCES are apparatus and staffing. Planning for the replacement of capital items (particularly apparatus) is not a practice that many fire departments utilize although SCES has been involved in capital replacement planning for some time. The department should continue to following its capital replacement plan; ESCI found that no additional apparatus were currently necessary except for the possibility of one to two more reserve apparatus. Future staffing is perhaps the most difficult of all future service delivery models to forecast. As the demographics and development of a community change, so do the department s needs in regard to adequate staffing. The department, as it stands today, is well staffed and those personnel are distributed such that each area of the community is within a reasonable travel distance for an effective response force for fire incidents. Since a majority of the department s service demand is medical in nature and SCES is a contractor to AHS to provide ALS transport services, the deployment of EMS resources (both physical and personnel) may become an issue in the future, particularly upon completion and opening of Strathcona Community Hospital. Projections provided to the department by AHS indicate that EMS service demand could as much as triple due to the new regional hospital. This increase in service demand, specifically the interfacility transfer component of the system, could negatively impact the ability of the department to continue to deliver the currently high level of EMS with comparable personnel schemas. Currently, each ALS transport ambulance operating within SCES is staffed with three personnel. This allows EMS units to respond to a majority of medical incidents within Strathcona County without the need for additional resources such as an engine or rescue. Those heavy resources and additional personnel are only dispatched when the incident is above the capabilities of a three-person crew to handle. As service demand increases, it may become necessary for SCES to approach AHS and petition for additional resources. It is common for those in the fire service to tout themselves or their department in terms such as a pride-driven organization that is at its best every day, or more simply, the best. The true mark of quality of the best fire departments, however, is one that works continuously for measurable improvement in organizational performance. By undertaking this study, those in positions of fire service leadership within Strathcona County have begun the task of organizational and system evaluation that is necessary to plan for and reach the goal of truly being the best. Page 9

19 This is not to say that the fire department is not already operating at a high level. In fact, ESCI is pleased to report all available evidence shows that the fire department consistently provides excellent service to the citizens of Strathcona County and is frequently called upon throughout Alberta to provide assistance and expertise related to emergency services and disaster response. However, in keeping with the notion of continuous improvement wherein an unending loop of performance, measurement, and evaluation leads to system enhancements that would otherwise be impossible, ESCI offers 73 short and mid-term recommendations to assist the county in implementing the strategies that will best benefit the public. These recommendations have been compiled into a prioritized list for easy reference and include the page number where they are located within the body of the report. The ESCI project team began collecting information concerning the fire services for Strathcona County in August The team members recognize that the report contains a large quantity of information and ESCI would like to thank the elected and appointed officials of Strathcona County as well as the officers and staff of Strathcona County Emergency Services for their tireless efforts in bringing this project to fruition. ESCI would also like to thank the various individuals and external organizations for their input, opinions, and candid conversations throughout this process. It is ESCI s sincere hope is that the information contained in this report is utilized to its fullest extent and that the emergency services provided to the citizens of Strathcona County are improved by its implementation. Page 10

20 Section I: Evaluation of Current Conditions Emergency Services Consulting International (ESCI) was engaged by Strathcona County to conduct a comprehensive review of the delivery of fire protection, rescue, and emergency medical services to the community. This report serves as the culmination of that evaluation and provides a review of each component of Strathcona County Emergency Services (SCES) as well as details future service demand projections and strategies for service delivery to meet the needs of the community well into the future. Organization Overview The report begins with an overview and description of the community as well as the service delivery infrastructure currently utilized by SCES. Service Area Population and Demographics Strathcona County, Alberta, is a specialized municipality located in central Alberta to the east of the City of Edmonton. Strathcona County Emergency Services provides fire protection, rescue, hazardous materials, and emergency medical response services to the entirety of Strathcona County and is part of the provincial EMS system that can be utilized anywhere throughout the province but is primarily used within Strathcona County and the City of Edmonton. The following figure illustrates the primary service area of SCES, which is comprised of approximately 1,179 km 2 (455.2 mi 2 ). Page 11

21 Figure 1: Service Area Overview Page 12

22 Strathcona County Emergency Services As of the 2011 municipal census, the population of the county was 92,490, making it the third largest municipality in Alberta behind Calgary and Edmonton and the 55 th largest municipality in Canada. 1 The 2006 federal census estimated total population at 82,511. The 2011 federal census is currently underway. For the purposes of this report, the 2006 federal census numbers will be utilized for all comparisons and projections. The following figure illustrates how Strathcona County has grown over the past 50 years. Figure 2: Population and Growth Rate, ,000 90,000 80,000 70,000 60,000 50,000 40,000 30,000 20,000 10, % 40% 30% 20% 10% 0% -10% -20% Total Population Population Growth Rate The average growth rate over the last 50 years was calculated to be 8.4 percent with a high growth rate of 25.4 percent ( ) and a low rate of -8.6 percent ( ). Since emergency services demand can be influenced by certain age groups, ESCI evaluated the total population of Strathcona County by age range. The following illustrates the age distribution of the county s total population. 1 Statistics Canada Strathcona County, Alberta (Code ) and Division No. 11, Alberta (Code 4811) (table). Census Profile Census. Statistics Canada Catalogue no XWE. Ottawa. Released February 8, (accessed March 8, 2012). Page 13

23 Figure 3: Population Age Distribution ,000 7,000 6,000 5,000 4,000 3,000 2,000 1, The predominant age groups within Strathcona County are those under the age of 19 and those between the ages of 30 and 59. Statistics indicate that those within the age groups of less than five years and greater than 65 years generally utilize emergency services at a higher rate than those in other age groups. For Strathcona County, these groups represent a total of 14.8 percent of the total population. This factor will be addressed later during the discussion of community risk. History, Formation and General Description SCES is a standing department within the general government of Strathcona County. The primary mission of the department has been and will continue to be fire protection for the citizens and properties located within Strathcona County; but as the field has evolved, so have the ancillary missions of SCES. Today, the department is the sole provider of specialized rescue services within Strathcona County and is currently serving as a regional dispatch center responsible for over 86,000 dispatches throughout the capital region last calendar year. In 2009, the responsibility and oversight of emergency medical services (EMS) was assumed by the Province of Alberta and SCES serves as a contract provider to the Province. This relationship will be discussed in a separate section of this report. SCES provides fire, rescue, and EMS services from five permanent stations, only three of which are staffed on a continuous basis (one additional station is currently under construction). Stations located within the more densely populated areas are staffed while those stations in the more remote areas are utilized by on-call personnel on an as-needed basis. SCES uses a total of 25 primary response apparatus Data not yet available for age distribution. Page 14

24 (including reserves). Although specific evaluations of stations and apparatus will be provided later in this report, the figure below compares SCES to other emergency services agencies across Canada serving similar populations. 3 Figure 4: Capital Equipment Benchmark Comparison Stations Pumpers Aerials Average SCES Station 6 Based on the benchmark data once Station 6 is completed, SCES is one station and one engine/pumper below the average number reporting in Canadian fire organizations. This is not to say that the department is under-resourced. The benchmark data is generated from a peer survey and only identifies how other departments serving similar populations are resourced. No correlation should be made between actual and necessary physical resources based on this data. The information is provided here to simply identify how SCES compares with similar agencies. Governance, Organizational Design, and Lines of Authority It is important to understand the governance structure in which a fire department operates. This includes the documents that authorize its functioning and the ability for it to receive adequate and sustainable funding. The lines of authority differentiate the basic organizational structure under which each department functions. A well-designed organizational structure should reflect the efficient assignment of responsibility and authority, allowing the organization to accomplish effectiveness by maximizing distribution of workload. 3 Karter, Michael J. Fire Departments in Canada, Table 5 Average Apparatus and Station Rates per 1,000 PEOP/MEPle By Community Size, p. 11. Page 15

25 The lines on an organizational chart simply clarify accountability, coordination, and supervision. Thorough job descriptions should provide the details of each position and ensure that each individual s specific role is clear and centered on the overall mission of the organization. The organizational structure of the department should demonstrate a clear unity of command, in which each individual member reports to only one supervisor (within the context of any given position) and is aware to whom he or she is responsible for supervision and accountability. This method of organization encourages structured and consistent lines of communication and prevents positions, tasks, and assignments from being overlooked. The overall goals and objectives of the organization can be more effectively passed down through the rank and file members in a consistent fashion. The organizational structure should be charted with clear, designated operating divisions that permit the core functions of the organization to be the primary focus of specific supervisors and assigned members. While some task-level activities may carry over from division to division, the primary focus of leadership, management, and budgeting within the division should be clarified by the division's key function within the mission statement. Those individuals supervising or operating within a specific division must be positively clear as to the role of the division and its goals and objectives. The department should have sufficiently analyzed its mission and functions such that a resulting set of specific agency programs have been established. Organized, structured programs permit better assignment of resources, division of workload, development of future planning, and analysis of service delivery. Those departments that have clarified their programs with titles, assigned leadership, resources, budget appropriations, performance objectives and accountability are among the most successful. SCES is a standing department within the organizational government of Strathcona County. As such, the fire chief and department director report to the Associate Commissioner of Community Services. The department s primary functions and authority to operate are outlined within county by-law. The fire chief is as an appointed official serving at the pleasure of the chief commissioner and county council. The department is segregated into clear divisions that are tasked with specific duties and responsibilities including: Community Safety and Emergency Communications Managed by a deputy chief Operations Managed by a deputy chief Human Resources and Logistics Managed by a deputy chief Page 16

26 Business Operations Managed by an assistant chief Emergency Management Managed by an assistant chief Each division head reports to the fire chief as the direct supervisor. In regard to field operations, the department staffs four platoon chiefs that oversee the day-to-day operations and supervise each of the department s four shifts. These personnel report to the deputy chief of operations as their direct supervisor. Budget and Finance Without adequate funding, no emergency services organization can survive or provide the level of service the community expects and deserves. Adequate funding can come from a variety of sources, including property taxes, special purpose levies, fund-raising, donations, or fees for service. Regardless of the source of revenue, it is imperative that departments have sufficient funding to carry out their primary mission. As a standing department within the Strathcona County government SCES s funding is received through the county s general fund. The SCES budget operates on a one-year cycle from January 1 to December 31. The current fiscal year department budget totals $24,860,710 and is not segregated into operating divisions as is the department. Beginning with the 2012 fiscal year, each operating division will have its own budget from which to operate. As is true with most career fire departments across North America, a majority of the SCES budget is dedicated to personnel as illustrated in the following figure. Page 17

27 Figure 5: Total Fire Protection Budget Distribution Although the department s total budget totals $24,860,710, not all of the budget is derived from property taxes. In fact, a significant portion of the county s overall budget ($8,463,369 for 2011) comes from user service fees and contracts with the Province or private industry as illustrated in the figure below. Figure 6: Service Fee and Contract Distribution Revenue Source Total Percent of Total User Fees $2,865, Contracts $5,597, Property Taxes $16,381, As of the current fiscal year, SCES does not hold any debt. Page 18

28 Management Components Being a service provider to a diverse community, SCES faces challenges to organizational growth and management. In addition to the operational challenges of emergency response, the management of the business of a fire department always presents unique issues involving the administration of financial resources, the setting of goals and objectives, internal and external communications, information management, and security. Mission, Vision, and Strategic Planning Emergency services exist in a rapidly changing environment. Along with improvements in tools and methods used to provide service comes increased regulation of activities, new risks to protect, and other challenges that can quickly catch the unwary off guard. Only through continuous internal and external environmental awareness and periodic course corrections can an organization stay on the leading edge. The process of planning for occurrences that will take place in the future requires both discipline and organization. In order to be truly effective, an emergency services agency considers planning on three distinct levels: tactical planning, operational planning, and master/strategic planning. Tactical planning is practical preparation of incident strategies for potential emergency incidents. Operational planning is preparation for the day-to-day activities of the agency and its integration into other regional or national response networks. Master planning (long-range planning) and strategic planning are preparation for the future success and effectiveness of the agency in a changing environment. SCES has done an exceptional job of planning for the various components of the organization over the past several years. The primary management team meets regularly to update certain planning components and to ensure that goals and objectives are being met. Bringing all the various plans together, however, has been lacking, thus the engagement of ESCI to complete this master planning and standards of cover process. Creating a long-term perspective is important for SCES. The capability to conduct qualitative and quantitative analysis of level or quality of service should be developed and the department should consider a full-time position dedicated to this task. Developing well defined objectives at the department will allow the organization and its policy makers to more readily identify and address future service delivery issues. Page 19

29 Recommendations: The department should continue the process of planning and coordinate those efforts into a formal long-range department master plan with the assistance of this document. The department should consider implementing a dedicated position of Business Analyst to track business processes and ensure compliance with adopted long-range planning efforts. Internal Assessment of Critical Issues It is extremely important that there be a clear understanding of critical issues facing the department. Without such an understanding, department leadership cannot be prepared to face these issues. In addition, the enunciation of critical issues to employees and members increases their awareness of the organization s priorities and assists them in becoming focused on solutions. A further exploration of critical issues should be completed during strategic planning processes, but for now the following issues should be given serious consideration. These are items that have been identified by the fire department as issues with significant potential for impacting the success of the organization and the effectiveness of its service both individually and as a region. Critical Issues Staffing in support divisions to accommodate needed services Internal communications Adequate and up to date policies and guidelines Strategic planning Wildland-urban interface problem is worsening As with critical issues, it is important for any agency to have an appropriate level of future thinking. This permits an agency to identify what external challenges may present themselves to the organization in the coming years. This awareness of future challenges ensures that the agency does not miss out on opportunities or blindly stumble into a crisis unprepared. Further exploration of future challenges should be part of a complete strategic planning process, but the department has completed a formal planning process and has identified the following as the three most recognizable future challenges. Future Challenges Impact of new hospital on service demand Increasing industrial and wildland-urban interface risks Continuing drive toward proactive organizational culture Page 20

30 Internal and External Communications Processes Strathcona County Emergency Services Quality communication is an achievable goal for any organization but one that always seems to be the most elusive. Regularly scheduled meetings permit management personnel to openly exchange ideas on a regular basis, share issues and concerns, apply creative teambuilding and problem-solving, and improve the overall flow of communications. Distributed minutes or summaries of regular staff meetings encourages internal communications and permits members to share ideas on issues involving departmental issues, enhancing a feeling of empowerment among personnel. Written, formal memorandums ensure that all members receive critical data in an organized and consistent fashion. This process also provides a critical written record of internal communications that are important to organizational efficiency. Employee and community newsletters can foster improved relations with internal and external stakeholders. To the department s credit, there are established communication processes that provide opportunities for personnel to be heard and involved and for information to be exchanged with the public. The following table provides information related to internal and external communications efforts. Figure 7: Summary of Internal and External Communications Components Communication Component Administrative Policies Available to All Members Standard Operating Guidelines Available to All Members Regularly Schedule Staff Meetings Conducted Minutes of Staff Meetings Taken/Distributed Written Memos (print or electronic) Used for the Regular Dissemination of Agency Information Standard Process for Memo Distribution Receipt Verification Required for Critical Information Distribution Member Forums/Meetings for Exchange with Administration Employee/Member Newsletter Published Formal Responsibility for Bulletin Board Management/Organization Distribution of Information Used Regularly All Members Have In-Box for Hard Copy Documents Voic for Key Officers Public Newsletter Published by Community or Agency Active Website In Use SCES Yes- available on electronic download source Yes- available on electronic download source Yes- weekly Yes Yes Yes Yes- electronic reply required Yes- occasional member meetings held Yes- agency newsletter No Yes- agency addresses issued Yes- shift/station mailboxes Yes- key officers have voic Yes- issued by mail, agency has contributed material Yes- includes updates, statistics and public education materials Page 21

31 Communication Component Formal Public Input Survey Conducted Formal, Written Complaint-Handling Policy In Place Citizens' Advisory Group Assists with Public Safety Planning Clear, Written Policy and Procedure for Access of Public Records (FOIA) SCES Yes- municipality conducted for all services Yes No Yes Recommendation: SCES, with the assistance of county administration, should consider the implementation of a citizens advisory group to assist policy makers in level-of-service planning. Recordkeeping Document Control and Security Records management is a critical function within any organization. A variety of uses are made of written records and their integrity must be protected. Certain laws require public access to specific fire and EMS department documents and data. The following figure summarizes the department s recordkeeping, document control, and security measures. Figure 8: Summary of Recordkeeping, Document Control, and Security Measures Document Control/Security Measure Hard Copy Files Secured Buildings Consistently Secured When Unoccupied Public Access Limited When Buildings Occupied Locks or Codes Changed Occasionally Any Buildings with Premises Security Alarms Any Buildings with Monitored Fire Alarm Systems Cash Accepted on Premises Petty Cash Use General Use Credit Cards SCES Yes- passage locks and container locks No- buildings not consistently locked when response occurs Public access secured to limited areas Individually coded passkeys used; can be disabled if lost or stolen Yes- administrative property only Yes- newer buildings only Yes- deposited weekly Yes- access strictly controlled Yes- key officer(s), strict account controls Recommendation: SCES should advise all personnel to ensure that buildings are secured at all times, both when facilities are occupied as well as when personnel are otherwise involved in incidents or external responsibilities. Page 22

32 Information Technology Systems Strathcona County Emergency Services Records management is a critical function to any organization. Effective performance measurement can only be accomplished when records are effectively collected, stored, and analyzed. This section provides an overview of information technology systems at SCES. Figure 9: Summary of Information Technology Components IT Component Type of Computer Network or System Redundant Servers Computer Files Backed Up Computers Programmed with Password Protection Updated Firewall and Virus Protection Records Fully Computerized SCES PCs networked to community/municipal server Yes Yes- backed up off-site Yes- timeout with inactivity Yes Incident records Page 23

33 Capital Assets and Capital Improvement Programs In order for any emergency services system to be effective, physical resources must be sufficient to handle the current and expected workload and be adequately distributed throughout the primary response area so as to affect the quickest response possible to the greatest number of incidents. Additionally, the apparatus or vehicles used in service delivery must be reliable and sufficient in number to accommodate the anticipated workload. This section of the report will evaluate the facilities and apparatus currently in use by the department. Distribution of those resources throughout the response area will be analyzed in the next section of this report. Facilities Inadequate facilities for housing personnel and apparatus detract from an organization s mission. Limited space can significantly impact the available options for resource assignment, hinder the ability to maintain a well-trained workforce, and may affect member and employee morale. The primary functions that take place within the station should provide adequate and efficient space for all functions. Some examples include: Housing and cleaning of apparatus and equipment Administrative office duties where necessary Personnel training Residential living that is gender compatible for on-duty members when necessary Operations that include enough room for community groups and parking While this list may seem elementary, the lack of dedicated space compromises the ability of the facility to support these functions, and can detract from its primary purpose. ESCI did not conduct an in-depth engineering or architectural review of the stations in the study area but did note locations, access to the community, general size, condition and usability. The following is a summary of each facility. Page 24

34 Station 1 Facility used for Active response station Administrative offices (HQ station) Address of Facility 1933 Sherwood Drive Year Facility Initially Constructed 1974 Number of Major Additions or Renovations 0 Building Square Feet 18,729 Drive-through capable 4 used with stacked parking Building Height Two-story Construction Type TYPE II-B--Unprotected Non-Combustible Outside Finish Metal siding Poured concrete Unusual Construction Features Yes- unusual exterior design Overall Construction Condition Worn paint or finishes Does Structure Appear to be ADA Compliant No Building Code Issues Evident None Roof Type Flat- composition Roof Age Over 10 years Roof Condition Small isolated leaks evident or reported Type of Heating System (all that apply) Forced air- natural gas Heating System Age 1 to 10 years Air Conditioning (all that apply) Central air- living and administrative areas only Any Known Maintenance or Disrepair Issues Yes- see report Overall Size of Facility No Adequate for Current Use Apparatus Exit Exit to traffic flow safe and unimpeded Building and Property No Blend Well with Neighborhood Building and Property Adaptable if Future Expansion need unlikely Expansion Needed Adequate Staff and Visitor Parking Staff parking is inadequate Visitor parking is inadequate Any Additional Design Comments None Automatic Door Stops on Yes Overhead Doors Operating Properly Adequate Fire Extinguishers Yes (not on apparatus) Cooking Equipment Central Shutdown Yes Page 25

35 Automatic Fire Sprinklers Present Fire Sprinkler System Type Alarm Systems Present Is Commercial Cooking Equipment Present Proper Hood Duct and Grease Filters in Place Fixed Fire Extinguishing System in Hood Properly Inspected Flammable and Combustible Liquids Stored in Approved Cabinet All Pressure Cylinders Stored Properly SCBA Compressor System Present Air Sample Certification Present and Visible Back-Up Generator Present Generator Fuel Type and Source Apparatus Exhaust Removal Underground Storage Tanks Present Apparatus Floor Drain Oil Separators in Place Adequate Space for Working On or Around Apparatus Apparatus Room Accommodates Working on Small Equipment Personnel Can Move Quickly and Easily to Apparatus for Response Adequate Space for Cooking and Eating Adequate Space for Local Company Training and Drills Are Compromises Necessary for Two-Gender Staffing Adequate Space for Personal Hygiene Adequate Space for Sleeping Adequate Space for Storage Identify any Additional Operational Compromises Made by Staff or Crew to Compensate for Facility Inadequacies List Facility Features Entire building Partial wet/partial dry Sprinkler water flow Monitored smoke/heat alarms No Yes Yes Yes Yes Yes Yes Yes, with auto transfer switch Diesel fuel local tank Direct connect vacuum system, connected No No oil separator in use Space around apparatus is adequate Adequate space Yes Yes Yes No Yes Inadequate space Inadequate space Female staffing requires temporary dorm setup Separate watch room/station office Administrative/support offices Communications/dispatch Day room/lounge Kitchen Quiet/study room Co-ed dormitory and separate officers' dormitory Shower/locker room(s) Dedicated exercise/workout area Turnout gear extraction washer SCBA filling station Page 26

36 Station 2 Facility used for Active response station Address of Facility South Cooking Lake Road Year Facility Initially Constructed 1980 Building Square Feet 3,993 Back-in 4 single unit Building Height One-story Construction Type TYPE II-B--Unprotected Non-Combustible Outside Finish Metal siding Unusual Construction Features None Overall Construction Condition Good condition Does Structure Appear to be ADA Compliant No Building Code Issues Evident None Roof Type Peaked- metal Roof Age Original to building Roof Condition No known problems Type of Heating System (all that apply) Forced air- natural gas Heating System Age Original to building Air Conditioning (all that apply) Central air- living and administrative areas only Any Known Maintenance or Disrepair Issues None Overall Size of Facility Yes Adequate for Current Use Apparatus Exit Exit to traffic flow safe and unimpeded Building and Property Yes Blend Well with Neighborhood Building and Property Yes Adaptable if Future Expansion Needed Adequate Staff and Visitor Parking Parking is adequate Any Additional Design Comments None Automatic Door Stops on Yes Overhead Doors Operating Properly Adequate Fire Extinguishers Yes (not on apparatus) Cooking Equipment Central Shutdown No cooking equipment present Automatic Fire Sprinklers Present None Page 27

37 Alarm Systems Present Is Commercial Cooking Equipment Present Flammable and Combustible Liquids Stored in Approved Cabinet All Pressure Cylinders Stored Properly SCBA Compressor System Present Air Sample Certification Present and Visible Back-Up Generator Present Apparatus Exhaust Removal Underground Storage Tanks Present Apparatus Floor Drain Oil Separators in Place Adequate Space for Working On or Around Apparatus Apparatus Room Accommodates Working on Small Equipment Personnel Can Move Quickly and Easily to Apparatus for Response Adequate Space for Cooking and Eating Adequate Space for Local Company Training and Drills Are Compromises Necessary for Two-Gender Staffing Adequate Space for Personal Hygiene Adequate Space for Sleeping Adequate Space for Storage List Facility Features No alarm systems present No Yes Yes Yes Certification status unknown not present No generator present Forced air through structure auto activation No Oil separator in use Space around apparatus cramped and movement is limited. Limited space for working at rear of apparatus Space is small and limited Yes Inadequate space Yes No Yes Not intended for sleep accommodation Inadequate space Separate watch room/station office Classroom for >10 Training library SCBA filling station Page 28

38 Station 3 Facility used for: Address of Facility Year Facility Initially Constructed 1976 Number of Major Additions or Renovations 0 Building Square Feet 2,982 Apparatus Bays: Back-in single unit Building Height Construction Type Outside Finish Unusual Construction Features Overall Construction Condition Does Structure Appear to be ADA Compliant Building Code Issues Evident Roof Type Roof Age Roof Condition Type of Heating System (all that apply) Heating System Age Air Conditioning (all that apply) Any Known Maintenance or Disrepair Issues Overall Size of Facility Adequate for Current Use Apparatus Exit Building and Property Blend Well with Neighborhood Building and Property Adaptable if Future Expansion Needed Adequate Staff and Visitor Parking Any Additional Design Comments Automatic Door Stops on Overhead Doors Operating Properly Adequate Fire Extinguishers (not on apparatus) Active response station 6 Main Street, Ardrossan 3 One-story TYPE II-B--Unprotected Non-Combustible Metal siding None Good condition No None Peaked- metal Original to building No known problems Forced air- natural gas Original to building Central air- living and administrative areas only None Yes Exit to traffic flow safe and unimpeded Yes Yes Parking is adequate None Yes Yes Page 29

39 Cooking Equipment Central Shutdown Automatic Fire Sprinklers Present Alarm Systems Present Is Commercial Cooking Equipment Present Flammable and Combustible Liquids Stored in Approved Cabinet All Pressure Cylinders Stored Properly SCBA Compressor System Present Air Sample Certification Present and Visible Back-Up Generator Present Apparatus Exhaust Removal Underground Storage Tanks Present Apparatus Floor Drain Oil Separators in Place Adequate Space for Working On or Around Apparatus Apparatus Room Accommodates Working on Small Equipment Personnel Can Move Quickly and Easily to Apparatus for Response Adequate Space for Cooking and Eating Adequate Space for Local Company Training and Drills Are Compromises Necessary for Two-Gender Staffing Adequate Space for Personal Hygiene Adequate Space for Sleeping Adequate Space for Storage List Facility Features No cooking equipment present None No alarm systems present No None present Yes Yes Certification out of date No generator present Forced air through structure auto activation No Oil separator in use Space around apparatus cramped and movement is limited. Limited space for working at rear of apparatus Space is small and limited Yes Inadequate space Yes No Inadequate space Not intended for sleep accommodation Yes Separate watch room/station office Classroom for >10 SCBA filling station Page 30

40 Station 4 Facility used for Active response station Training or drill facility Address of Facility Range Road 214 Year Facility Initially Constructed 2001 Number of Major Additions or Renovations 0 Building Square Feet 23,000 Drive-through capable 4 used with stacked parking Building Height One-story Construction Type TYPE II-B--Unprotected Non-Combustible Outside Finish Masonry block Unusual Construction Features None Overall Construction Condition Good condition Does Structure Appear to be ADA Compliant Yes Building Code Issues Evident None Roof Type Flat- composition Roof Age Original to building Roof Condition No known problems Type of Heating System (all that apply) Radiant- natural gas Steam/boiler- natural gas Heating System Age Original to building Air Conditioning (all that apply) Central air- living and administrative areas only Any Known Maintenance or Disrepair Issues None Overall Size of Facility Adequate for Current Use Yes Apparatus Exit Exit to traffic flow safe and unimpeded Building and Property Blend Well with Yes Neighborhood Building and Property Adaptable if Future Expansion need unlikely Expansion Needed Adequate Staff and Visitor Parking Parking is adequate Any Additional Design Comments None Automatic Door Stops on Overhead Doors Yes Operating Properly Adequate Fire Extinguishers (not on apparatus) Yes Page 31

41 Cooking Equipment Central Shutdown Automatic Fire Sprinklers Present Fire Sprinkler System Type Alarm Systems Present Is Commercial Cooking Equipment Present Flammable and Combustible Liquids Stored in Approved Cabinet Location of Improperly Stored Flammables/Combustibles All Pressure Cylinders Stored Properly SCBA Compressor System Present Air Sample Certification Present and Visible Back-Up Generator Present Generator Fuel Type and Source Apparatus Exhaust Removal Underground Storage Tanks Present Apparatus Floor Drain Oil Separators in Place Adequate Space for Working On or Around Apparatus Apparatus Room Accommodates Working on Small Equipment Personnel Can Move Quickly and Easily to Apparatus for Response Adequate Space for Cooking and Eating Adequate Space for Local Company Training and Drills Are Compromises Necessary for Two-Gender Staffing Adequate Space for Personal Hygiene Adequate Space for Sleeping Adequate Space for Storage List Facility Features Yes Entire building Partial wet partial dry Sprinkler water flow Monitored smoke/heat alarms No No Storage room Yes Yes Certification out of date Yes with auto transfer switch Natural gas piped in No exhaust removal effort in place No Oil separator in use Space around apparatus is adequate Adequate space Yes Yes Yes No Yes Yes Yes Separate watch room/station office Station officer private office Communications/dispatch Day room/lounge Kitchen Conference room(s) Classroom for >10 Training library Quiet/study room Individual dormitories/separate officers dormitory Shower/locker room(s) Dedicated exercise/workout area SCBA filling station Page 32

42 Station 5 Facility used for Active response station Address of Facility 2099 Clover Bar Road Year Facility Initially Constructed 1991 Number of Major Additions or Renovations 1 Year of Major Addition/Renovation 2010 Building Square Feet 6,469 Additional 3,303 added in 2010 Back-in 1 single unit Drive-through capable 2 used with stacked parking Building Height One-story Construction Type TYPE II-B--Unprotected Non-Combustible Outside Finish Masonry block Unusual Construction Features None Overall Construction Condition Good condition Does Structure Appear to be ADA Compliant Yes Building Code Issues Evident None Roof Type Peaked- metal Flat- membrane Roof Age 1 to 10 years Roof Condition No known problems Type of Heating System (all that apply) Forced air- natural gas Steam/boiler- natural gas Heating System Age 1 to 10 years Air Conditioning (all that apply) Central air- living and administrative areas only Any Known Maintenance or Disrepair Issues None Overall Size of Facility Adequate for Current Use Yes Apparatus Exit Exit to traffic flow safe and unimpeded Building and Property Blend Well with Yes Neighborhood Building and Property Adaptable if Future Expansion need unlikely Expansion Needed Adequate Staff and Visitor Parking Parking is adequate Any Additional Design Comments None Page 33

43 Automatic Door Stops on Overhead Doors Operating Properly Adequate Fire Extinguishers (not on apparatus) Cooking Equipment Central Shutdown Automatic Fire Sprinklers Present Fire Sprinkler System Type Alarm Systems Present Is Commercial Cooking Equipment Present Flammable and Combustible Liquids Stored in Approved Cabinet Location of Improperly Stored Flammables/Combustibles All Pressure Cylinders Stored Properly SCBA Compressor System Present Air Sample Certification Present and Visible Back-Up Generator Present Generator Fuel Type and Source Apparatus Exhaust Removal Underground Storage Tanks Present Apparatus Floor Drain Oil Separators in Place Adequate Space for Working On or Around Apparatus Apparatus Room Accommodates Working on Small Equipment Personnel Can Move Quickly and Easily to Apparatus for Response Adequate Space for Cooking and Eating Adequate Space for Local Company Training and Drills Are Compromises Necessary for Two-Gender Staffing Adequate Space for Personal Hygiene Adequate Space for Sleeping Adequate Space for Storage List Facility Features Yes Yes Yes Entire building Partial wet, partial dry Sprinkler water flow Monitored smoke/heat alarms No No In non-approved cabinet in bays Yes Yes Certification status unknown, not present Yes, with auto transfer switch Diesel fuel, local tank Direct connect vacuum system- connected No Oil separator in use Space around apparatus is adequate Adequate space Yes Yes Yes No Yes Yes Yes Separate watch room/station office Station officer private office Day room/lounge Kitchen Quiet/study room Individual dormitories/separate officers' dormitory Shower/locker room(s) Dedicated exercise/workout area Separate turnout gear room Turnout gear extraction washer Page 34

44 SCES Station 6 is currently under construction and was not evaluated for this project. In addition, SCES Station 7 is included within the department s three-year capital plan. Apparatus In totality, SCES maintains a fleet of six engines, five tanker/tenders, two aerial trucks, seven ambulances, four brush units and two other specialty vehicles. 4 Most of the current emergency vehicles fall within what is considered to be an acceptable life span, with an average age calculated at 10.3 years. The following figures summarize fire and emergency response apparatus that was in service at the time of data collection. Some of these apparatus have been replaced since that time and an accurate reflection of those replacements is included in the future delivery section of this document. Engine 1 Unit Status Active Service Manufacturer Superior Year of Manufacture 1992 Mileage 69,219 miles Hours 5,953 Pumping Capacity 7,000 Litres Per Minute (LPM) Tank Capacity 500 gallons Seating Capacity 6 Number of SCBA 4 Equipment Large diameter hose, Generator, BLS medical gear Thermal imaging camera, Class A foam/educator, Class B foam/eductor Surface Rust Present Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Fair 4 Accurate as of time of data collection. Since that time, SCES has put new vehicles into service and retired others. The SCES fleet is dynamic and changes frequently. Page 35

45 Engine 2 Unit Status Active Service Manufacturer Superior Year of Manufacture 1989 Mileage 48,985 Hours 2,307 Pumping Capacity 5,000 LPM Tank Capacity 500 gallons Seating Capacity 6 Number of SCBA 4 Equipment Large diameter hose, Generator Surface Rust Present Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Fair Engine 3 Unit Status Active Service Manufacturer Superior Year of Manufacture 1989 Mileage 19,800 Hours 296 Pumping Capacity 5,000 LPM Tank Capacity 750 gallons Seating Capacity 6 Number of SCBA 4 Equipment Large diameter hose, Generator, BLS medical gear, Automatic external defibrillator, Class B, foam/eductor Surface Rust Present Moderate Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Page 36

46 Engine 4 Unit Status Active Service Manufacturer Superior Fire Equipment Year of Manufacture 2000 Mileage 85,708 Hours 3,286 Pumping Capacity 7,000 LPM Tank Capacity 500 gallons Seating Capacity 6 Number of SCBA 4 Equipment Large diameter hose, Generator, BLS medical gear Thermal imaging camera, Class A foam/educator, Class B foam/eductor Surface Rust Present Light Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Good Squad 5 Unit Status Active Service Manufacturer Smeal Fire Apparatus Year of Manufacture 2007 Mileage 89,394 Hours 4,382 Pumping Capacity 7,000 LPM Tank Capacity 500 gallons Seating Capacity 5 Number of SCBA 4 Equipment Large diameter hose, Generator, Articulating flood light, Power rescue tool, Rope rescue gear, Water rescue gear, ALS medical gear, Automatic external defibrillator, Thermal imaging camera, Compressed air foam system, Class B foam/eductor Surface Rust Present Light Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Good Page 37

47 Tower 1 Unit Status Active Service Manufacturer Smeal Fire Apparatus Year of Manufacture 2004 Mileage 43,323 Hours 3,317 Pumping Capacity 8,000 LPM Type of Elevating Aerial Device Platform Tower Elevating Device Style Mid-Chassis Mount Height Of Device At Full Elevation 100 ft. Does this unit also respond as a standard engine Responds as aerial/truck company only (quint use) Tank Capacity 500 liters Seating Capacity 6 Number of SCBA 5 Equipment Large diameter hose, Generator, Rope rescue gear BLS medical gear, Thermal imaging camera, Class A & B foam injection Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Rescue 1 Unit Status Active Service General Rescue Class Heavy Rescue non walk-in Manufacturer Rosenbauer International Year of Manufacture 2006 Mileage 27,893 Seating Capacity 6 Number of SCBA 5 Equipment Generator, articulating flood light, power rescue tool, rope rescue gear, water rescue gear, confined space rescue gear, ALS medical gear, automatic, external defibrillator, thermal imaging camera Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Good Page 38

48 Rescue 4 Unit Status Active Service General Rescue Class Medium Rescue non walk-in Manufacturer General Fire Equipment Year of Manufacture 2001 Mileage 74,414 Seating Capacity 5 Number of SCBA 4 Equipment Generator, power rescue tool, rope rescue gear water rescue gear, ALS medical gear, automatic external defibrillator Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Tender 1 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 1990 Mileage 110,475 Hours 4,258 Does this unit also respond as a standard engine Tanker use only Pumping Capacity non rated pump Tank Capacity 12,400 liters Seating Capacity 2 Number of SCBA 0 Equipment Portable float pump Surface Rust Moderate Structural Rust and Corrosion Light Apparent Fluid Leaks Light Condition Rating Fair Page 39

49 Tender Unit Status Reserve not fully equipped Manufacturer Superior Year of Manufacture 1984 Does this unit also respond as a standard engine Tanker use only Pumping Capacity 1,100 LPM Tank Capacity Unknown Seating Capacity 5 Number of SCBA 0 Equipment Not in service Surface Rust Moderate Structural Rust and Corrosion Moderate Apparent Fluid Leaks None Condition Rating Fair Tender 2 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 2008 Mileage 40,901 Hours 1,395 Does this unit also respond as a standard engine Tanker use only Pumping Capacity Unknown Tank Capacity Unknown Seating Capacity 5 Number of SCBA 2 Equipment Water supply equipment Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Good Page 40

50 Tender 5 Unit Status Active Service Manufacturer Crimson Fire Apparatus Year of Manufacture 2010 Mileage 10,752 Hours 178 Does this unit also respond as a standard engine Tanker use only Pumping Capacity 7,000 LPM Tank Capacity 14,500 liters Seating Capacity 2 Number of SCBA 0 Equipment Generator, Articulating flood light, BLS medical gear Portable dump tank, Short elevating boom, waterway Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating New Tanker 4 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 2001 Mileage 84,846 Hours 2,668 Does this unit also respond as a standard engine Tanker use only Pumping Capacity non-rated pump only Tank Capacity 12,000 liters Seating Capacity 2 Number of SCBA 0 Equipment Class A foam/eductor Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Excellent Page 41

51 Special Ops 4 Unit Status Active Service General Rescue Class Medium Rescue non walk-in Manufacturer General Fire Equipment Year of Manufacture 2002 Mileage 100,552 Seating Capacity 5 Number of SCBA 4 Equipment Generator, power rescue tool, rope rescue gear water rescue gear, BLS medical gear Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Ambulance 1423 Unit Status Active Service Manufacturer Crestline Year of Manufacture 1998 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Fair Ambulance 1457 Unit Status Reserve Status not fully equipped Manufacturer McCoy Miller Corporation Year of Manufacture 2000 Mileage 195,712 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment Stocked, but no monitor or jump bags Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Fair Page 42

52 Ambulance 1530 Unit Status Reserve Status response-ready Manufacturer Crestline Year of Manufacture 2002 Mileage 214,331 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Ambulance 1548 Unit Status Active Service Manufacturer Crestline Year of Manufacture 2003 Mileage 190,872 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Fair Ambulance 2034 Unit Status Reserve Status response-ready Manufacturer Crestline Year of Manufacture 2009 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Excellent Page 43

53 Ambulance 2035 Unit Status Active Service Manufacturer Crestline Year of Manufacture 2009 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Excellent Ambulance 2115 Unit Status Active Service Manufacturer Crestline Year of Manufacture 2010 Equipped for ALS Crew Seating Capacity 2 Number of SCBA 0 Equipment ALS medical gear Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating New Brush Truck 1 Unit Status Active Service Manufacturer Buyers Equipment Company Year of Manufacture 2007 Mileage 23,120 Pumping Capacity GPM Tank Capacity 1,100 LPM Seating Capacity 4 Number of SCBA 0 Equipment Class A foam, Remote control nozzle Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Page 44

54 Brush Truck 2 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 2001 Mileage 36,327 Pumping Capacity GPM Tank Capacity 250 gallons Seating Capacity 5 Number of SCBA 0 Equipment Generator, BLS medical gear, Automatic external defibrillator, Floating pump. Winch, Inflatable 10' boat Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Brush Truck 3 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 1999 Mileage 55,863 Pumping Capacity GPM Tank Capacity Unknown Seating Capacity 5 Number of SCBA 0 Equipment BLS medical gear, Automatic external defibrillator, Class A foam, Wildland fire gear Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Page 45

55 Brush Truck 4 Unit Status Active Service Manufacturer General Fire Equipment Year of Manufacture 1997 Mileage 96,115 Pumping Capacity GPM Tank Capacity 250 gallons Seating Capacity 2 Number of SCBA 0 Equipment Class A foam, Wildland fire equipment Surface Rust Light Structural Rust and Corrosion Light Apparent Fluid Leaks None Condition Rating Good Ranger 4 Unit Status Active Service Manufacturer Polaris Pumping Capacity GPM Tank Capacity 60 gallon Seating Capacity 2 Number of SCBA 0 Equipment Class A foam Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Good Airboat Unit Status Active Service Manufacturer Canadian Airboats Limited Year of Manufacture 2009 Pumping Capacity No pump Tank Capacity No tank Seating Capacity 5 Equipment Water rescue gear, BLS medical gear Surface Rust None Structural Rust and Corrosion None Apparent Fluid Leaks None Condition Rating Excellent Page 46

56 Staffing and Personnel Management Strathcona County Emergency Services SCES employs career staff, supplemented by volunteers, to accomplish its mission and deliver services to the citizens of Strathcona County. This section of the study describes the staffing and personnel management activities and provides an analysis of the organization s current staffing levels. ESCI s review of personnel management programs focused on: Policies, rules, regulations, manuals, and handbooks Reports and records Labour-management relationship and issues Certifications and licensing Disciplinary process Counseling services The application and recruitment process Testing, measuring, and promotion processes Health and wellness programs In simplest terms, staffing is defined as to supply with a staff or with workers. 5 In broader terms, it involves the decisions and activities connected with selecting and training individuals for specific job functions and charging them with job responsibilities. organization; in this case, SCES. These individuals provide the staff for an Before delving into a discussion of staffing and personnel management, a clarification is offered. The terms "human resource management" and "human resources" (HR) have largely replaced the term "personnel management" as a description of the processes involved in managing people in organizations. 6 However, the terms are frequently used interchangeably when describing the recruitment and retention of a workforce. Human resource management (HRM) is based on the assumption that workers and members of organizations are individuals with varying goals, desires, needs, and wants. As such, the workforce should never be thought of as an inanimate business resource. Because people represent the very foundation of any successful organization, HRM should take a positive view of workers, assuming that all 5 Merriam-Webster Online Dictionary, Armstrong, Michael (2006). A Handbook of Human Resource Management Practice (10th edition), London: Kogan. Page 47

57 wish to contribute productively; and that the main obstacles to any endeavour result from a lack of knowledge, insufficient training, or process failure. Careful attention must be paid to managing the workforce to achieve maximum productivity for the organization and maximum satisfaction for the individual. A safe working environment, fair treatment, and recognition for a job well done are key components to job satisfaction. It is important that the organization s members know to whom they should go when they have a problem, question, or issue related to their relationship to the county. In large companies, a human resource department typically handles this function. Staff within such a department address questions, issues, and tasks related to appointment, benefits, performance, discipline, promotion, or termination of employees. Administrative and Support Staff One of the primary responsibilities of a fire department s administrative and support staff is to ensure that the operational entities have the ability and means to accomplish their duties on the emergency incident. Efficient and effective administration and support are critical to the department s success. Without sufficient oversight, planning, documentation, training, and maintenance, the operational entities of a fire department may fail any operational test. Additionally, like any other part of a fire department, administration and support require appropriate resources to function properly. Analyzing the administrative and support positions of a fire department facilitates an understanding of the relative number of resources committed to this important function. The appropriate balance of the administrative and support components to the operational component is critical to the success of a department s mission and responsibilities. The following figures outline the corporate, administrative, and/or support organizational structure and complement of the fire department. Page 48

58 Figure 10: Administrative and Support Permanent Positions Position Number Department Director and Fire Chief 1.0 Deputy Chief 3.0 Assistant Chief 2.0 Division Chief 1.0 Fire Marshal 1.0 Captain 2.0 Lieutenant 3.0 Material Management Controller 1.0 Material Management Assistant 0.6 Accounting Assistant I 1.0 Support Assistant 1.0 Technical Specialist 2.0 Administrative Assistant I 2.0 Public Education and Marketing 0.6 Total Fire and Emergency Management 21.2 Communications Captain 1.0 Communications Lieutenant 4.0 Communications Operator 8.0 Total Communications 13.0 Total Departmental 34.2 Although there is no set guide to determine the appropriate ratio of administrative and support staff to total personnel, through ESCI s experience with emergency services agencies it is common to find ratios in the range of 10 to 15 percent for those agencies not providing transport EMS services. Those agencies that do provide transport EMS, however, tend to have higher ratios of administrative and support staff to total personnel. SCES s ratio of administrative and support staff to total personnel equals 18.5 percent. However, it should be noted that many fire departments are involved neither in emergency management nor emergency communications activities. These positions account for 17 FTEs (full-time equivalents) within the current system. Removing these positions from the overall total of administrative and support would result in a ratio of 13.1 percent, below the expected range for a department the size of SCES that provides transport EMS. The County should work with SCES to determine the appropriateness of an additional administrative support position as well as an accounting assistant to better support the functions of the department. Operational Staffing It takes an adequate and well-trained staff of emergency responders to put the appropriate emergency apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an operational Page 49

59 scene decreases the effectiveness of the response and increases the risk of injury to all individuals involved. The following figures summarize the personnel assigned to street-level service delivery as provided by the department. Figure 11: Operations Complement Position Number Platoon Chief 4.0 Assistant Platoon Chief 4.0 Captain 16.0 Lieutenant 21.0 Firefighter Total Source: ESCI Worksheet (Effective September 2012) The department has 151 career emergency response personnel plus approximately 50 part-time paidon-call personnel that supplement the career staff. The population of SCES s area is approximately 92, The ratio of firefighters per 1,000 population is 1.60 including all career personnel. The firefighters per 1,000 population is above the regional median but is only slightly below the national high based on NFPA statistics. 2.5 Figure 12: Career Firefighters per 1,000 Population Low Median High SCES 7 Based on 2011 Census Canada. 8 Karter, Michael J. Fire Departments in Canada, Table 1 Career Firefighter Rates by Population Protected, p. 2. Page 50

60 It should be noted, however, that the ratios represented above, which were obtained from a report issued by the National Fire Protection Association, does not differentiate between those departments that do or do not provide transport EMS. SCES is a contracted provider of transport EMS through Alberta Health Services and, therefore, would be expected to have a higher than average ratio of career personnel per 1,000 population. Staff Allocation In communities across North America, the number of fire calls has declined over the past decade. Yet as the frequency of fires diminishes, in part due to stricter fire codes and safety education, the workload of fire departments has risen sharply; medical calls, hazardous materials calls, and every sort of household emergency is now addressed by fire departments. Therefore, as the frequency of fires diminishes, the need for a ready group of personnel has increased. Although modern codes tend to make fires in newer structures more infrequent, today s energyefficient construction (designed to hold heat during the winter) also tends to confine the heat of a hostile fire. In addition, research has shown that modern furnishings generally burn hotter (due to synthetics), and roofs collapse sooner because prefabricated roof trusses separate easily after a very short exposure to flame. In the 1970s, scientists at the National Institute of Standards and Technology found that after a fire breaks out, building occupants had about 17 minutes to escape before being overcome by heat and smoke. Today, that estimate is three minutes. 9 The necessity of firefighters arriving on the scene of a fire in the shortest span of time is more critical now than ever. Along with a quick response, a robust, well-trained, and appropriately equipped compliment of emergency workers is needed to successfully mitigate structural fires. Too few firefighters at an emergency scene decreases effectiveness and increases the risk of injury to firefighters and civilians alike. While many requests for emergency assistance are comparatively low risk requiring few personnel, the emergency workers needed to mitigate a structure fire are greater. A house fire involving just one room and its contents is considered a moderate risk incident in the industry. SCES operates five fire stations throughout the primary response area but only staffs Stations 1, 4 and 5. Stations 2 and 3 are unstaffed and have volunteer firefighters assigned for response duties. Deployment 9 National Institute of Standards and Technology, Performance of Home Smoke Alarms, Analysis of the Response of Several Available Technologies in Residential Fire Settings, Bukowski, Richard, et al. Page 51

61 At maximum staffing, SCES maintains 34 personnel on duty (22 suppression and 12 EMS dedicated personnel) and has a policy minimum staffing of 22 personnel, including those on EMS transport units required by contract. Staffing for specific apparatus is dependent upon the incident. In cases where departments staff units with predominantly volunteer or other on-call responders, it is often useful to evaluate staffing performance based on per incident averages or other methods to determine if the department is able to produce sufficient personnel to effectively mitigate most incidents. Since SCES staffs with predominantly career personnel supplemented by volunteers, the minimum staffing levels would be assumed to be the minimum level of staffing that would be available for incident response. In the case of SCES, this would equate to 22 total personnel at minimum and as many as 38 at maximum, including 12 dedicated EMS personnel. Staff Scheduling Departments across North America have been extremely creative in developing alternative staff scheduling models. Historically, emergency services agencies (primarily fire services) worked 24-hour shifts with 48 hours off. This is commonly known as a 24/48 schedule. Today, however, organizations have created, either through necessity or through contract negotiations and/or concessions, alternative schedules of containing a variety of variables. In ESCI s experience in working with over 800 emergency services providers across the U.S. and Canada, some examples of alternative schedules include: 8-hour shifts o 10-hour shifts o 12-hour shifts o 14-hour shifts o 24-hour shifts o o 48-hour shifts o Typical 40-hour workweek Usually limited to daytime hours (SCES schedule) Consists of four shifts working a variety of schedules Usually limited to nighttime hours (SCES schedule) Consists of a variety of schedules Can be 24/24, 24/48, 24/72, 24/96 or otherwise Limited use but typically follows a 48/96 pattern Page 52

62 SCES currently works a schedule of two 10-hour days followed by two 14-hour nights followed by four 24-hour periods off. This translates into an average 42-hour workweek. The current schedule is a point of labor contract negotiations and is only of concern should a change occur in the current labormanagement relationship. Responsibilities and Activity Levels of Personnel In previous and subsequent sections of the report, the need for adequate levels of management and administrative support are discussed. In volunteer departments most of the administrative and operational responsibilities typically are distributed among the officers and members of the department. The distribution of these responsibilities could be based on the officers titles or positions, areas of personal interest, and/or the members expertise. Career organizations generally follow a more structured distribution of specific responsibilities to positions dedicated to fulfill those responsibilities. Without a good distribution of these responsibilities, members could suffer from premature burnout and inevitably withdraw from participation with the organization. Without a good succession plan in place, many organizations suffer from the loss of continuity. The use of committees in the fire service is often a means to promote a more integrative approach to fire department management. Standards, recruitment and retention, apparatus specifications, awards program, training, disciplinary, and grievance are samples of commonly used committees that aid in the operations of the fire service. During ESCI s field visit, SCES indicated that routine responsibilities were distributed based primarily on area of personal interest or expertise; however, since the department is segregated into clear operating divisions, each command position is tasked with specific responsibilities. Staff also indicated that standing committees are currently part of the organization s structure and ad hoc committees are used frequently in areas such as apparatus and equipment, training, wellness and fitness. Counselling Services Emergency services bring otherwise ordinary people into life and death situations that sometimes end tragically. Even though department personnel are trained responders, they do not have an impregnable shield that prevents them from being affected by traumatic events. Critical incident stress is a very real condition that affects all emergency service workers to some degree or another. Every emergency Page 53

63 worker handles stress in a different way and, at times, may be unable to adjust or compensate. The trigger for significant psychological trauma may be a single event or a series of compounding events. Fire and EMS departments recognize the need to provide a support system for emergency workers who are exposed to traumatic incidents. Critical incident stress interventions by this group are short-term processes only. Although this intervention is normally enough to help emergency personnel cope with the event, on occasion longer-term support is needed. Failure to provide that support can ultimately lead to the loss of a very valuable member of an organization. An Employee Assistance Program (EAP) is offered by organizations to personnel as a long-term stress intervention tool. Typical plans allow the member a fixed number of counselling visits per year with no out-of-pocket cost. The counselling provides additional support for other life problems that may affect a member s motivation and work quality, such as substance abuse, marital difficulties, and financial problems. SCES offers sufficient counseling services to all personnel, including volunteers through a county-sponsored program. Application, Recruitment and Retention Personnel recruitment is a key function of all emergency service agencies. The community places a tremendous amount of faith in fire and EMS personnel, trusting them to provide the highest level of service when the public is most vulnerable. As such, the process used to select personnel should be very comprehensive. Experience within the fire service industry has shown that relaxing the requirements for entry-level positions is not the answer for recruiting any employee. Instead, most departments have had greatest success in activities that encourage qualified applicants to apply. This process often involves targeted advertising and promotional campaigns aimed at demonstrating the salary and benefits, as well as the personal satisfaction, of a career in the fire service. Existing employees can be encouraged to participate in any such campaign and professional assistance from a human resource department is advisable. SCES has an active recruitment program with complete applications available both online and at the municipal offices. According to the department website, the process from application to start date takes approximately six months and includes: Recruitment open house Aptitude test Page 54

64 Agility test (administered by the University of Alberta) Medical skill testing Formal interview Medical physical Minimum qualification for becoming a firefighter include: Valid Alberta Class 3 and 4 driver s license with air brake endorsement and no more than seven demerits Minimum of grade 12 education or equivalent Registration with the Alberta College of Paramedics as a Paramedic or EMT Legally entitled to work in Canada Able to pass medical and physical standards Either NFPA 1001 Level 2 and EMT or paramedic or second year paramedic student Part-time personnel have a much lower level of initial qualifications and do not follow similar requirements as career personnel. These part-time personnel are typically assigned to either South Cooking Lake Station 2 or Ardrossan Station 3. Only those within the following areas are eligible for parttime/volunteer duty. Page 55

65 Figure 13: Part-Time Employment Eligibility Areas 10 Retention efforts within SCES are not formalized and standard employee benefits are the primary tools for ensuring retention of career personnel. Although no formal retention program is in place for volunteer personnel, part-time/volunteer personnel are compensated at an hourly rate for all responses and trainings that they attend. Recommendation: SCES should develop and implement formal retention programs for both career and parttime/volunteer personnel to ensure viability of the volunteer program into the future. 10 Map courtesy SCES. Page 56

66 Testing, Measurement and Promotion Processes Strathcona County Emergency Services Once on staff, personnel should be evaluated periodically to ensure their continued ability to perform job duties safely and efficiently. Technical and manipulative skills should be assessed on a regular basis. This provides documentation about a person s ability to perform responsibilities and provides valuable input into the training and education development process. It is important to maintain such programs whenever possible; it has long been known that members sincerely wish to be a contributing part of any organization. This basic desire to succeed is best encouraged through feedback that allows each member to know what he/she is doing well and what skills may need improvement. Honest and effective feedback encourages members to reinforce mastered skills and abilities and to work harder to improve the areas where performance may fall short. Regular evaluation and feedback for personnel is critical to behaviour modification and improvement. Technical and manipulative skills should be evaluated regularly. This provides documentation about a person s ability to perform their responsibilities and provides valuable input into the training and education development process. NFPA 1021 Standard for Fire Officer Professional Qualifications 2009 Edition identifies the recommended progressive levels of performance required at the various levels of fire officer responsibility including Fire I, II, III and IV. These processes should be evaluated for integration into the SCES promotional system and, if necessary, included in the collective bargaining agreement. Recommendations: Promotional processes should include standard qualifications outlined in NFPA SCES should implement an Officer Development Program that follows IAFC recommendations Health and Wellness Programs Keeping members safe and healthy, once thought of as an expensive and unneeded extra, is today an important component of a fire departments method of operation. It has been clearly documented that it is by far cheaper to prevent injury than to pay for rehabilitation and work replacement. 11 Modern, progressive departments are incorporating numerous methodologies into the daily routine of firefighters to help in this regard. 11 American Journal of Industrial Medicine, Volume 43, Issue 4; The Economic Consequences of Firefighter Injuries and Their Prevention, National Institute of Standards and Technology, March 2005, pgs Page 57

67 There is a need for fire departments to have access to a group of professionals with expertise in the occupational medicine field. Occupational medicine is dedicated to promoting and protecting the health of workers through preventive services, clinical care, research, and educational programs. One aspect of a program is keeping up to date with health and safety regulations, standards, and current practices. Occupational medicine specialists review current practices to see if they meet the regulations, make modifications if needed, and assist the department in adopting any changes. Another aspect of a holistic occupational medicine system is fitness programs. Fitness programs are used to monitor and develop required physical training to keep personnel ready for the tasks to be performed and reduce the possibility of injury while on the job. The importance of employee health and welfare and the potential liability associated with the lack of such programs necessitates that fire departments establish close professional relationships with occupational medicine specialists to assure that emergency workers are protected by the most up-todate occupational health and safety programs possible. Occupational safety and health programs (sometimes referred to as Industrial Medicine) vary in depth, form, and delivery. A fire department may employ a physician full time, contract with a provider organization, or conduct a program partially in-house while contracting for the remaining services. A stress test is used to determine the amount of stress that a heart can manage before developing either an abnormal rhythm or evidence of ischemia (inadequate blood flow to the heart muscle). The test provides information about how the heart responds to exertion. It usually involves walking on a treadmill or pedaling a stationary bike at increasing levels of difficulty, while an electrocardiogram, heart rate, and blood pressure are monitored. The test helps to determine if there is adequate blood flow to the heart during increasing levels of activity and the likelihood of having a coronary event or the need for further evaluation. Annual medical physical examinations should be considered for fire department personnel at all ranks and job assignments. Examinations should follow NFPA Baseline values for all firefighters should be established at time of hire that include: titer level, vision, spirometry, audiometry, hepatitis B and C, and tetanus. Medical physical assessments should involve periodic stress tests of incumbent employees every two to five years, based on age and risk factors. We recommend that a stress test be performed at the time of hire to determine if a candidate has an underlying heart defect or disease that would put them at risk Page 58

68 while performing the duties of a firefighter. The leading cause of death for firefighters is heart attack (44 percent). Death from trauma, including internal and head injuries, is the second leading cause of death (27 percent). Asphyxia and burns account for 20 percent of firefighter fatalities. 12 In a joint effort, the International Association of Fire Fighters and the International Association of Fire Chiefs have developed a health and wellness model for use by both volunteer and career fire departments. The program, known as, The Fire Service Joint Labor Management Wellness/Fitness Initiative is designed for current personnel and requires a commitment by both labor and management to provide a positive and individualized wellness/fitness program. The program addresses medical evaluation, fitness evaluation, injury/medical rehabilitation, behavioral health, cost justification, data collection and implementation. The Los Angeles County (California) Fire Department implemented a wellness and fitness program following the IAFF/IAFC mode; workers compensation claims were reduced 23 percent since the introduction of the program, resulting in significant cost savings. SCES has fully embraced this program. The figure below summarizes the personnel management elements of SCES. Figure 14: Summary of Personnel Management Components Personnel Management Component Types of Staffing Used Duties and Responsibilities Assigned By Member Committees Used Retirement Plan Medical Insurance (not duty related) Dental Insurance (not duty related) Vision Insurance (not duty related) Critical Incident Stress Debriefing (CISD) Program Employee Assistance Program (not duty related) Disciplinary Policy Disciplinary Appeals Process SCES Career, Part-Time-scheduled, Part-Time-unscheduled Title or position carries specified duties Apparatus and equipment- standing committee Safety- standing committee Facilities- ad hoc Clothing standing Human resources development standing Lifestyle standing Health and wellness - standing epcr - ad hoc Local municipal plan used Local Authorities Pension Plan - provincial Employer paid Employer paid Employer paid County or regional team Yes- all personnel Formal written policy in place Formal written process in CBA documents 12 The United States Fire Administration (USFA), The USFA Firefighter Fatality Retrospective Study: , October Page 59

69 Personnel Management Component Minimum Physical Standards Established Aptitude of Knowledge Testing Pre-Appointment Medical Exam Required Pre-Appointment Medical Exam Paid Nature of Pre-Appointment Medical Exam Who is the Hiring Authority Applicant Process Includes Periodic Capability Testing to Measure Minimum Standards Compliance Periodic Performance Evaluations Frequency of Performance Evaluations Formal Promotional Testing Types of Promotional Testing Post-appointment Periodic Medical Examinations Nature of Periodic Medical Exam SCES Yes- for career members only Yes- career only Yes Paid by agency Exam is fully NFPA 1582 compliant Municipal human resources department Complete application packet with job description and requirements, Application review, Applicant interview panel, Criminal history check, Employment reference checks, Personal reference checks, Written test, Physical agility test, Medical examination, Probationary period Training Yes- written Annual Course completion based Course completion based Yes- career only Exam is fully NFPA 1582 compliant Recommendation: The County should maintain funding for the department s wellness and health initiatives as an injury and illness mitigation program. Page 60

70 Service Delivery and Performance The delivery of fire suppression and rescue services requires efficient notification of an emergency, rapid response from well-located facilities in appropriate apparatus, and sufficient staffing following a wellpracticed plan of action. This section of the report evaluates these various components and provides observations of the elements that make up the delivery of the most critical core services provided by SCES. Demand Demand is defined as the workload experienced by an emergency services organization. This workload can be emergency and/or non-emergency depending on the mission of the organization. For SCES, most of the demand is related to EMS responses, as identified in the figure below. Figure 15: Service Demand by Major Category, ,500 4,000 3,500 3,000 2,500 2,000 1,500 1, Fire EMS Other As evidenced by the figure above, a majority of SCES s service demand is EMS in nature. Over the nineyear period evaluated, EMS incidents have increased a total of 62.4 percent while actual fire incidents have increased 72.9 percent but with much higher variability. Although total fire incidents have increased, structure fires have generally been on the decline over the data period as illustrated in the following figure. Page 61

71 Figure 16: Structure Fires, Service demand is not static, and SCES s workload varies by temporal variation. The following figures illustrate how SCES s service demand varies by month, day of week, and hour of day in order to identify any periods of time that pose significantly different risks and hazards. ESCI begins this analysis by evaluating service demand by month. Figure 17: Service Demand by Month, Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Although there are several spikes in service demand in different months within each year, overall analysis indicates that workload is somewhat higher in the spring and summer months as the general Page 62

72 population begins to be more active at the conclusion of winter. Analysis continues with a look at service demand by day of week. Figure 18: Service Demand by Day of Week, Sunday Monday Tuesday Wednesday Thursday Friday Saturday Over the data period provided, there seems to have been a shift of daily workload. Early in the data period, the busiest days were Sunday and Monday; during 2010, Thursday and Friday were generally the busiest days. The temporal analysis concludes with an evaluation of service demand by hour of day. Figure 19: Service Demand by Hour of Day, Page 63

73 As expected, workload by hour of day is lowest during the overnight and early morning hours with a general increase beginning around 6:00 a.m. and peaking during the midday hours before tailing off into the evening. This typical bell curve pattern of demand closely follows general human activity patterns. Since a majority of the department s workload is medical in nature, it is useful to determine how well medical resources are being utilized. One method to evaluate utilization is to use what is commonly known as unit hour utilization IUHU). UHU is an indicator of how busy a given unit or unit types are within a certain system. UHU is calculated by dividing the total number of incidents by the total number of available hours of the units being measured. In this case, SCES uses four transport ambulances to fulfill the contractual obligations of Alberta Health Services and these ambulances are on duty 24 hours per day. The levels of efficiency, or UHU, vary from organization to organization but, in general, experience has shown that fire-based EMS systems strive for a UHU of around In third service systems, that UHU goal is routinely 0.30; and in private for-profit providers, UHU levels can reach as high as 0.35 or 0.40 in an effort to maximize profits. The differences in the threshold levels are typically addressed through the modification of shift length to attain a higher utilization ratio. Research has shown that UHU s above these thresholds lead to increased employee burnout and an increased likelihood of clinical errors. Since SCES is technically a fire-based EMS model, a UHU of 0.25 would be an acceptable upper limit. Given the workload over the past six years, SCES s ambulance UHU has been calculated and is illustrated below. Figure 20: Unit Hour Utilization by Year, Page 64

74 As can be seen in the figure above, the UHU for SCES s ambulances has been increasing steadily over the past six years. Based on linear projections in service demand, SCES will reach the 0.25 threshold in This does not take into account, however, other modifiers to service demand projections. The final evaluation of service demand is geographical. The following map illustrates total service demand for SCES for the 12-month period of July 1, 2010, to June 30, Figure 21: Geographic Service Demand Page 65

75 A vast majority of service demand is concentrated in close proximity to the current station locations. Another way to view this service demand is by incident type. Medical and rescue incidents comprise a majority of the SCES service demand as illustrated geographically in the following map. Figure 22: Geographic Service Demand - Medical/Rescue Incidents Page 66

76 Although SCES provides EMS to areas outside Strathcona County as part of the Provincial EMS system, those incidents occurring within Strathcona County are again concentrated within Sherwood Park. The following figure illustrates the department s lowest frequency but most high risk incidents, structure fires. Figure 23: Geographic Service Demand - Structure Fires Page 67

77 Not unsurprisingly, structure fire service demand follows the areas with higher population densities and higher structure densities. A scattering of structure fires is also noted throughout the entirety of the County, but at a much lower density than within Sherwood Park. Distribution SCES operates from five facilities distributed across Strathcona County. Three of these stations are staffed continuously with full-time personnel and the remaining stations are staffed with volunteer personnel on a per incident basis. There exists a certain extent of the jurisdiction that can be reached within a certain travel time from the stations regardless of staffing patterns. That is, once a unit is en route to an incident from the current station locations, there is a certain geographic area that can be covered within specific time periods. This is known as travel time. The intent of distribution analysis is to determine not only how much area can be covered from the existing stations within a certain amount of time, but also how much of the historic service demand can be covered within that time. The following map illustrates the four and eight-minute travel model from each existing station location. Page 68

78 Figure 24: Travel Time Capability Area, Current Deployment The travel model indicates that SCES can reach only 5.0 percent of the total land area within four minutes of travel and 38.8 percent in eight minutes of travel from the current station locations. It should be understood, however, that covering land area does not translate into covering potential service demand or population. The travel model indicates that SCES can reach 65.6 percent of the total service Page 69

79 demand in the primary response area within four minutes of travel and 93.9 percent in eight minutes of travel from the current station locations. With the addition of Station 6, this response performance will increase to 70.1 percent of service demand within four minutes of travel and 94.2 percent within eight minutes of travel. This additional coverage is highlighted in the following figure. Figure 25: Travel Time Capability Area, With Station 6 Page 70

80 When Station 7 is added to the deployment model, overall response performance increases to 72.0 percent at four minutes and 94.4 percent at eight minutes. Although the percentage of service demand covered by the proposed Station 7 doesn t seem to be substantial, as the new hospital is brought on-line along with ancillary development to the north of Sherwood Park, service demand is expected to increase, which will be covered by Station 7. Figure 26: Travel Time Capability Area, With Stations 6 and 7 Page 71

81 It is easy to see that the deployment of Station 6 and Station 7 will improve the current coverage of both area and service demand and will allow the department to provide better coverage to developing areas to the north of Sherwood Park. A discussion of the advantages and/or disadvantages to additional stations, particularly in the rural areas, will be addressed in the Future Service Delivery Models section of this report. Published peer standards, 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 13 and NFPA 1720 Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer or Combination Fire Departments includes a performance objective of 240 seconds or less travel time for the arrival of the first arriving engine company in urban areas serviced by career fire departments. 14 NFPA 1720 also recommends a response performance objective of nine minutes or less when measured at the 90 th percentile in urban areas, 10 minutes or less in suburban areas and 14 minutes or less in rural areas served by volunteer or combination fire departments. NFPA 1710 does not differentiate between the various population densities and assumes that all areas served by career or mostly career fire departments, such as SCES, will adhere to a single performance objective. It should be understood, however, that the response performance objective set by NFPA is extremely difficult for most departments to achieve, particularly those agencies serving a variety of population densities. The following figures were excerpted from a 2006 U.S. Fire Administration document that polled departments for actual response performance and then produced the results. 13 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. (National Fire Protection Association 2010.) 14 NFPA 1720, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer and Combination Fire Departments. (National Fire Protection Association 2010.) Page 72

82 Nationally, the highest percentage (16 percent) of structure fires had a response time in the four-minute range. The percent of structure fires with response times of three and five minutes were not far behind at 15 percent and 14 percent, respectively. Overall, 61 percent of structure fires in 2001 and 2002 had a response time of less than six minutes. Page 73

83 The preceding figure shows that the mean response time was lowest for fires confined to the room of origin (less than seven minutes) while fires that spread beyond the building of origin have the highest mean response time (less than nine minutes). Establishing response performance objectives for SCES will be addressed in the future service delivery strategies section of this report. Concentration Concentration is an analysis of the department s ability to assemble an adequate amount of resources, either personnel and/or apparatus, within a sufficient amount of time to effectively mitigate specific incidents, particularly structure fires. Concentration analysis does not consider staffing patterns and only evaluates travel time as the primary factor. Thus, Stations 2 and 3 in the following figure, which are not staffed, are still included in the analysis as if staff were in-house ready for response. The figure illustrates the SCES modeled concentration abilities based on a variety of apparatus and personnel criteria. Page 74

84 Figure 27: Effective Response Force Assembly - Apparatus Page 75

85 The following map provides a greater detail of the Sherwood Park area. Figure 28: Effective Response Force Assembly Apparatus (Detail) The preceding maps, which do not include Station 6, indicate that SCES should be able to assemble one Platoon Chief (BC), three engines, and one aerial apparatus within eight minutes within the area of highest service demand. As would be expected, as the distance from the more populated areas Page 76

86 increases, the ability to concentrate apparatus decreases. The following map illustrates the department concentration once Station 6 is added. Figure 29: Effective Response Force Assembly Apparatus with Station 6 Page 77

87 The following map provides a greater detail of the Sherwood Park area. Figure 30: Effective Response Force Assembly Apparatus with Station 6 (Detail) As would be expected, the department s concentration increases by one engine/squad in the areas that would be serviced by Station 6. This ability to concentrate apparatus and personnel will be further enhanced by the placement of Station 7 in the future, as illustrated in the following maps. Page 78

88 Figure 31: Effective Response Force Assembly Apparatus with Stations 6 and 7 Page 79

89 The following map provides a greater detail of the Sherwood Park area. Figure 32: Effective Response Force Assembly Apparatus with Stations 6 and 7 (Detail) The preceding effective response force models all rely on perfect circumstances; that is, all resources are in house and available for response. This is not typically the case. Incident concurrency, multiple simultaneous incidents, will degrade the department s ability to assemble sufficient personnel and Page 80

90 apparatus if the concurrency reaches a certain level. In ESCI s experience, a concurrency level above 10 percent will have a negative impact on effective response force concentration. Fortunately for SCES, concurrency rates are currently below 10 percent but should be monitored on a regular basis by department leadership. Reliability Reliability is a measure of an organization s ability to respond to incidents occurring within its own jurisdiction without requiring external assistance. This is typically measured by evaluating the utilization of in-service units and comparing that against industry standards. Several factors can influence an organization s reliability including service demand, distribution of resources or, for those services operating transport EMS units, hospital turn-around intervals. The figure below illustrates how the department s hospital turn-around intervals have increased over the last six years. Figure 33: Average Hospital Turn-Around Time, :00:00 0:30:00 1:00:00 1:30:00 2:00:00 The average turn-around times illustrated above show that the time that EMS units are spending at hospitals has doubled in the past six years. This trend is more than likely due to the increased usage of emergency departments by the general public for non-emergency conditions. This over-usage creates a back-up within the hospital system and requires EMS crews to wait longer to transfer care of their patients to hospital staff. This increased wait time decreases the department s overall reliability. Another way to measure reliability is to evaluate total out-of-service time or commit time. Evaluating commit time allows the analysis of unit hour utilization (UHU), an industry utilized measure of how busy Page 81

91 particular units tend to be. UHU analysis is typically meant as an economic indicator of how efficient units within the system operate but allows organizations to evaluate the overall efficiency of the system, even outside the economic perspective. The following figure illustrates the average commit time of each transport ambulance within the system as indicated within the records management system over the last six years. Figure 34: Average Out-of-Service (Commit) Time per Incident, :00:00 0:30:00 1:00:00 1:30:00 2:00:00 2:30:00 3:00:00 Only the transport ambulances are evaluated here because they tend to be the busiest units within a system and their overall commit time is typically much longer than a non-transport unit. As with hospital turn-around times, overall commit time has increased over the last six years to over 2.5 hours per incidents. This translates to an average UHU of Recommended UHU targets for fire department units are around 0.20, with some studies indicating that significant employee burnout can occur with fire-based EMS units at around 0.30 unit hour utilization. Measuring the individual unit hour utilization of SCES units is difficult because nine units are utilized but no more than four are ever on duty at one time. Therefore, the total workload of the department has been used to determine an average UHU. Using this method, the average UHU calculates to This indicates that the units are not currently over-worked and have at least some surplus availability. This surplus availability is necessary within a system that relies on these personnel to also be available for suppression duties if required. Another factor to consider in the future is that once Station 6 is operational, there will be no reserve engine to be placed into service if one should need repairs or otherwise become non-functional. SCES Page 82

92 should begin working to ensure that an adequate supply of reserve apparatus is available so as not to reduce the department s overall reliability in the future. Recommendation: SCES should continue working to ensure that an adequate supply of reserve apparatus is available so as not to reduce the department s overall reliability in the future. Response Performance Total response time is the amount of time a resident or business waits for an apparatus to arrive at the scene of an emergency beginning when they first call This process begins for the fire department once the appropriate unit is dispatched by the communications center. The period of time between dispatch and when a unit is en route to the incident is known as turnout or reflex time. The following charts illustrate the department s turnout times over the last six years based on the average and 90 th percentile measurements. 15 Figure 35: Average and 90 th Percentile Turnout Time Performance, :00 01:00 02:00 03:00 90th Average NFPA 1710 recommends that career fire departments be able to be en route to fire incidents within 80 seconds or within 60 seconds for medical incidents when measured at the 90 th percentile. As illustrated in the figure above, SCES s 90 th percentile turnout time performance in 2010, although improved over 15 Mutual aid calls, non-emergent calls, and interfacility transfers were removed from response time analyses as they were found. Page 83

93 previous years, is still greater than two minutes. The next phase of the response time continuum is the actual travel time. Although actual travel time was not measured for this study, the overall response from dispatch to first unit arrival was analyzed. Figure 36: Average and 90 th Percentile First Unit Arrival Response Performance, :00 02:00 04:00 06:00 08:00 10:00 12:00 14:00 16:00 90th Average For career fire departments, NFPA 1710 recommends that departments respond to fire incidents within 05:20 (5 minutes 20 seconds) or 05:00 for medical incidents. Although the figure above indicates a 90 th percentile response performance above NFPA recommendations, it should be understood that this figure only evaluates the response throughout the entirety of Strathcona County and does not take into account that many of these responses are in rural areas outside of Sherwood Park. Nor does this take into account the type of incident to which the department is responding. In order to gain a more accurate picture of these different response zones and types of incidents, the available data was evaluated further. The following figure illustrates the department s performance to incidents based on response zone. Page 84

94 Figure 37: Average and 90 th Percentile Response Performance by Response Zone Fire Responses Rural 90th % 19:39 Rural Average 12:11 Urban 90th % 11:03 Urban Average 07:05 00:00 04:00 08:00 12:00 16:00 20:00 24:00 The following figure repeats the information above for medical responses. Figure 38: Average and 90 th Percentile Response Performance by Response Zone Medical Responses Rural 90th % 21:09 Rural Average 12:24 Urban 90th % 10:42 Urban Average 06:36 00:00 04:00 08:00 12:00 16:00 20:00 24:00 Another method to measure response performance is to evaluate how long it actually took personnel to arrive at the patient during medical emergencies. The following figure evaluates this component of overall response performance. Page 85

95 Figure 39: Average and 90 th Percentile Dispatch to Patient Contact Response Performance, :00 02:00 04:00 06:00 08:00 10:00 12:00 14:00 16:00 18:00 20:00 90th Average As presented previously, the department has differing performance based on the response zone. The following figure illustrates those differences. Figure 40: Average and 90 th Percentile Dispatch to Patient Contact Performance by Response Zone, 2011 Rural 90th % 46:24 Rural Average 18:27 Urban 90th % 33:31 Urban Average 10:02 00:00 05:00 10:00 15:00 20:00 25:00 30:00 35:00 40:00 45:00 50:00 As an added piece of analysis, ESCI evaluated the trend of the time it is taking for SCES personnel to reach a patient s side during a medical emergency. This trend is provided in the figure below. Page 86

96 Figure 41: 90 th Percentile Urban and Rural Dispatch to Patient Contact Trend :00 05:00 10:00 15:00 20:00 25:00 30:00 35:00 40:00 45:00 50:00 Rural 90th % Urban 90th % Although based on the figure above it appears as though patient contact times have increased significantly, it is possible that these times are not accurate; at times, personnel may forget to notify communications of first patient contact. One method to mitigate this type of mistake is to implement mobile computers that allow field responders to record themselves on-scene or with the patient. These times are then automatically recorded within the CAD. What is more commonly known as status buttons are a common practice in more urbanized organizations across North America. Recommendation: SCES should consider implementing mobile computer terminals with status buttons to assist with the accurate collection of response time data. Wildfire Response and Impact Wildfire can be defined as any uncontrolled fire in vegetation that occurs in rural or wilderness areas. These types of fires are also known as brush fire, grass fires or wildland fires depending on the area in which the fire is located or the type of vegetation involved. Wildfires are typically much larger in scope than other fires and can spread much more rapidly as well as change direction unexpectedly; they are extremely dangerous due to their tendency to involve large areas and their potential impact to both life and property. Although wildfires do, under certain circumstances, have beneficial effects such as regrowth and vegetative reproduction improvement, those wildfires that encroach on urban or suburban areas or those that are intentionally set have the potential to cause extensive damage. Page 87

97 Those areas within what is known as the wildland-urban interface refer to zones that transition between unoccupied land and otherwise developed areas. In general, areas that are within 1 kilometer of the direct interface zone can also be included. These areas are at an elevated risk from wildfires and require special protection measures during wildfire seasons. SCES has a significant wildland-urban interface zone, particularly surrounding Sherwood Park as well as those areas throughout the county that have been developed in the midst of rural zones. In order to effectively combat fires within the wildland-urban interface, seven main disciplines should be the focus: fuel management, education, legislation, development, planning, training, and interagency cooperation. These are described in more detail below. 1. Fuel Management Manage the vegetation in and around your property to lessen the risk of wildfire. This can be accomplished by: Thinning and pruning Removing volatile trees such as spruce and planting fire-resistant species such as aspen (species conversion) The construction of fuel breaks General cleanup in and around your property 2. Education Effectively communicate to people living in forested areas the need to be aware of the wildfire threat and to take action in having their property and community become "FireSmart." 3. Legislation Review the existing legislation both provincially and within the local municipal government. Is it effective and being adhered to? Are changes and updates required to fit the need of preventing and actioning a wildfire scenario? 4. Development Is the construction of new homes or subdivisions being developed in a "FireSmart" manner? Assess the infrastructure as it relates to roadway access, water supply, utilities placement, building materials and design, and forested areas adjacent and within the community. Page 88

98 5. Planning Emergency procedures and response plans in place to meet the threat from a wildfire scenario. This preparedness occurs at all levels from the homeowner to the fire agencies involved. Adapting existing developments to be "FireSmart." Determining the values at risk and building an appropriate preparedness plan. 6. Training Cross-training is in place for the fire agencies involved in a suppression effort within the Wildland Urban Interface. Between municipal fire departments and the wildland fire agency (Alberta Sustainable Resource Development), ensure that the equipment, communications and training courses are compatible to effectively action a wildfire scenario in the Wildland Urban Interface. 7. Interagency Cooperation Bring together all of the agencies that can be involved with the scenario of combating a wildfire in the interface area. Cooperative agreements, partnerships, initiatives, linked emergency plans and assigned commitments and responsibilities are in place and reviewed. 16 During fiscal year 2009, wildfire and the efforts to mitigate wildland-urban interface incidents consumed nearly 25 percent of the SCES annual budget. Thus, it is understandable that wildland fire is a considerable issue within the department. SCES should work with county officials to ensure that sufficient and appropriate staffing and equipment are available to deal with this substantial risk. In addition, the department should continue to work within the recommendations of FireSmart Communities. SCES did complete a community wildfire survey in 2010 to assess the perceived wildfire risk, awareness and experience with Strathcona County residents. Based on the results of the survey, residents believe that wildfire is the second highest hazard concern behind drought. In addition, residents expressed their limited extent to which they would be willing to accept the wildfire risk. This translates into a higher need for protection and mitigation efforts by SCES. 16 Taken directly from the Government of Alberta, Sustainable Resource Development website at Page 89

99 Recommendations: SCES should work with county officials to ensure that sufficient and appropriate staffing and equipment are available to deal with the substantial wildfire risk within the community. The department should continue to work within the recommendations of FireSmart Communities. High-Rise Impact Fires in high-rise buildings everywhere have the potential to be one of the most challenging incidents to which emergency services personnel respond. The potential for loss of life is high. Fires can burn for extended periods of time before operations can begin. The reflex time involved is extended due to the additional time required to reach the fire area. It is not uncommon for 15 or 20 minutes to elapse after the arrival of the first unit before fire attack can actually commence. A fire in a high-rise building requires a high level of coordination. Personnel should anticipate a large commitment of resources. Only with proper preplanning will familiarity with the response district be possible. There are still a significant number of high-rise buildings, both residential and commercial, that have nothing more in terms of fire protection than a standpipe. Each of these presents its own set of problems and challenges in the event of a fire. Operations are affected by several specific challenges: Access to floor levels that are beyond the reach of aerial apparatus is generally limited to the interior stairways. The use of elevators is usually restricted or prohibited because of safety concerns. Hundreds or even thousands of occupants may be exposed to the products of combustion while they are evacuating or unable to descend past a fire on a lower floor. Their exits may be limited to two narrow stairways, which are also the only access for firefighters coming up to assist with evacuation and to fight the fire. The ability to contain and control the fire is increasingly dependent on the construction of the building and the ability of sprinkler and/or standpipe systems to deliver water to the fire area. Ventilation can be much more complicated and critical in high-rises than in other types of structures. Vertical ventilation is often limited to stairways or elevator shafts, both of which may also have to be used to evacuate occupants. Horizontal ventilation, by breaking out windows, presents the risk of falling glass to those outside the building. The stack effect causes smoke to rise rapidly through the vertical passages and accumulate on upper floors. These special structures require specific apparatus, personnel and equipment to effectively handle an incident. Based on a manual published by the U.S. Department of Homeland Security, Incident Command for High-rise Operations states, Page 90

100 If possible, enough resources to handle the incident should be on scene within the first 20 minutes. Significant high-rise fires require a minimum of three handlines. When necessary, the presence of three handlines allows parallel lines on the fire floor and a line on the floor above to cover extension. The same manual identifies five primary guidelines that should be followed on high-rise fires: Locate the Fire and Consider Rescue Problems Simultaneously Begin the Process of Controlling Evacuation Gain Control of Building Systems Confine and Extinguish the Fire Deploy Lines to Control Extension These guidelines are accomplished through a combined use of both engine and truck companies. Personnel assigned to these apparatus have specific duties that should be performed in a coordinated effort to ensure quick mitigation of the fire. The high pressure required to supply water to the upper floors of a high-rise building limits the amount of water that a fire department pumper can supply. A good rule of thumb is to have a separate pumper supply the standpipe system for each handline in operation. Engine companies also can be used to set up base, lobby, staging or ground support stations. Unlike small residential fires, high-rise fires require multiple handlines and may require elevated rescue. Truck companies are normally assigned duties such as determining life hazards and initiating evacuations, conducted searches, provide support for the engine companies, etc. A prefire plan is necessary for these procedures. Whether or not a fire department has sufficient truck companies to assign to these jobs, sufficient trained personnel must be dedicated by the incident commander. As with any other interior attack, high-rise structures require that a rapid intervention crew (RIC) be positioned with a minimum of four personnel to monitor the interior operations and be ready for firefighter rescue if necessary. These personnel are exclusive of those involved in active interior operations. Currently, SCES protects a number of high-rise structures including hotels, governmental structures, and senior living facilities. In addition, three pockets within Sherwood Park exist where high-rise development is expected to occur. With this in mind, SCES should continue to plan and prepare for highrise firefighting and rescue operations. Based on information contained within a Fire-Rescue International 2010 presentation, a typical high-rise complement of resources includes: Page 91

101 4 Engines 2 Ladder Trucks 1 Heavy Rescue 1 EMS Unit 2 Shift Supervisors 26 Firefighters Strathcona County Emergency Services 2 EMS Personnel (minimum for firefighter rehab) Although the example above indicates a total of 28 personnel, moderate and high risk structures may require many more personnel. The Center for Public Safety Excellence (CPSE) recommend as many as 12 companies and 45 personnel for moderate risk high-rise fires. High risk structures could require as many as 100 personnel depending on the level of fire involvement. SCES should continue to train on high-rise operations and be diligent in preparations as high-rise development continues throughout the county. Recommendation: SCES should implement training on high-rise operations and be diligent in preparations as highrise development continues throughout the county. Incident Control and Management Fire departments must have systems in place to manage incidents and resources. Preparation begins with the establishment of pre-incident plans on higher risk structures, such as commercial or industrial occupancies, along with development of resource management systems in the event of large-scale or concurrent incidents. Location mapping, standardized response protocols, and water supply planning also help prepare a department for efficient and effective emergency response. Once a call is dispatched, management of the incident itself begins. Fire departments should utilize incident command structures compliant with local, provincial, or federal regulations. Personnel accountability systems should be established in department procedures and should be implemented on all multi-apparatus working incidents. The following table summarizes comparative information on the department s command and control performance. Page 92

102 Figure 42: Summary of Incident Management Components Incident Management Component Hydrant Locations Mapped Alternate Static Water Points Mapped Maps Available in All Vehicles Standard Response Recommendation Based on Type of Call Minimum Number of Responders per Apparatus Standardized Turnout Time Standards Established Total Response Time Standards Established Simultaneous Incident Cover Plans Is a Duty Officer Assigned 24-Hours Per Day Is Incident Command System Used Incident Arrival Size-Up Announcement Required Initial Strategy Declaration Required on Arrival Is an Accountability System Used on All Major Incidents Do Command Officers Have Formal Strategy and Tactics Training Do Command Officers Have Formal Building Construction Training Minimum Level of Hazmat Certification for Responding Personnel Formal Safety Officer Assignment Two-In, Two-Out Practices SCES Yes- no main sizes or flow rates shown No Yes- department vehicles only Yes Yes Yes- 90 seconds for EMS, 120 seconds for fire Yes Urban under 8:00 (from call pickup) Rural under 17:00 (both at 90 th percentile) Station move-up manually by Incident Commander Call-back system for career personnel Yes- assigned shift officer Always All incidents All multi-company incidents Most of the time Yes- local classes only Yes- local classes only Hazmat- Awareness Up to the incident commander at each incident Strict compliance with two-in, two-out rules Water Supply In certain portions of the county, SCES depends on tanker shuttles for its fire protection water supply. During a tanker shuttle, the fire department typically establishes at least one water point, a location from which water can be pumped into the tankers by means of either a drafting pumper or gravity flow. The flow of water requires tanker trucks to move back and forth between a fire scene and the water point. Time is consumed at the point where the tankers are loaded with water, known as load time. Time is also consumed at the point where they discharge their water at the fire scene, typically into portable Page 93

103 dump tanks, known as the offload time. The final element of time in a tanker shuttle is consumed by travel back and forth, which is dependent on the distance between the fire and the water point. During interviews, it became obvious that the community has a limited number of water points available for fire protection supply. This is a critical factor in the ability of the fire department to maintain adequate flow of water at a fire scene, quantified by the measurement of litres per minute (LPM). An inadequate flow can result in continued fire spread and the inability to control a fire. The size of the building and the area involved in fire are used to determine the needed fire flow. The National Fire Academy in Emmitsburg, Maryland, teaches the following methodology for this calculation. ([length X width]/3) x 3.8 = LPM per floor LPM per floor X # of floors Total LPM X % of fire involvement For example, a two-story residential structure that is 40 feet in length by 30 feet wide that was 60 percent involved in fire would have a needed fire flow of 1,824 litres per minute. It is critical that the fire department knows its ability to deliver this quantity of water throughout the geography of the town. This can be calculated when certain factors are known. For instance, in the following chart, ESCI provides example calculations of the ability of a tanker shuttle to deliver LPM, based on the size of the tankers, the load and offload times, and the distance to a water point. Distances are shown in miles. Page 94

104 Figure 43: Sample Tanker Shuttle Capability Calculations Capacity Load Time Offload Time Example Tanker 1 5,700 04:45 00:30 Example Tanker 2 6,650 05:15 00:40 Example Tanker 3 6,840 05:20 01:00 Distance in miles LPM Flow 1,619 Distance in miles LPM Flow 1,385 Distance in miles LPM Flow 1,210 Distance in miles PM Flow 1,075 Distance in miles LPM Flow 966 Distance in miles LPM Flow 878 Distance in miles LPM Flow 804 It is important that the fire department completes true and accurate calculations of its normal tanker shuttle capability, using tested load and offload times and true capacity (based on weight testing). Maps can then be generated using established water points in the town that would demonstrate LPM flow capability on all town street segments. The map street segments could be color-coded to show LPM capability. More importantly, once this calculation effort was completed it would become relatively obvious where additional water points would most benefit the town. To that end, additional effort could be made to obtain rights to any existing static supplies or new water points, such as cisterns or gravity tanks, which could be installed. It is also important that SCES recognize the criticality of LPM flow and the proximity of water points as it considers new development or redevelopment of areas. The county is in the best position to require installation of adequate and plentiful water points through land use regulations and permit processes. The establishment of additional water points spread strategically throughout the county would have perhaps the greatest positive impact on the firefighting abilities of SCES. Page 95

105 To the department s credit, it was recently accredited through the fire underwriters survey for water shuttle. SCES is the first department in Alberta, Manitoba, or Saskatchewan to receive this accreditation. The construction of water lines to outlying areas will assist the department in addressing water supply issues within the rural zones. Recommendation: SCES should work with local authorities in the appropriate areas to establish additional water points spread strategically throughout the county. Page 96

106 Support Programs Training Systems Providing safe and quality fire and emergency services requires a well-trained workforce. Training and education of department personnel are critical functions for SCES. Without quality, comprehensive training programs, emergency outcomes are compromised and departmental personnel are at risk. One of the most important jobs in any department is the thorough training of personnel. The personnel have the right to demand good training and the department has the obligation to provide it. 17 The Deputy Chief of Human Resources & Logistics oversees the Occupational Health, Safety and Training Branch of SCES and is responsible for the Human Resources and Logistics portfolio directly overseeing the Occupational Health, Safety and Training Branch. This position has recently assumed the portfolio coming from the operational side of SCES. In total, this portfolio has four FTEs in this branch: Divisional Chief Captain Lieutenant Administrative Assistant SCES experienced significant organizational changes through 2008 and into 2009 stemming from both internal and external influences. It has become apparent that, as the staffing levels in the Operations Division increase, so do the demands put on the support services branches such as the Occupational Health, Safety and Training Branch. This support branch has grown from a single member Divisional Chief in 2006 to the introduction of two new positions of Captain and Lieutenant in 2009 and a full-time Administrative Assistant in This small, talented team has developed the framework which introduced training plans, job competencies, and safety activities meeting the regulatory requirements in Alberta. It has become evident that the demands placed on this branch now exceed its resources. In the past five years, the Training Branch has succeeded in several areas related to training and safety, specifically: Recruit orientation improved the preparation of the newly hired firefighters. The orientation program is now 11 weeks, includes hands-on training, equipment familiarization, and departmental practices procedures. 17 Klinoff, Robert. Introduction to Fire Protection, Delmar Publishers, New York, NY. Page 97

107 Competencies have been identified for the firefighter from probationary to third class level. Mentors and company officers sign off on performance of these competencies through the submission of standardized records audited by the Training Branch. In-house officer development courses ensure that officer candidates are now certified to NFPA 1021 standards and lay the foundation for establishing objective performance benchmarks. Part-time firefighters now have a template for organizing their training to suit the needs of the department. County designed formal workplace inspections are now modified to reflect relevance in the fire station environment. Strategies are aimed at generating conscious decision-making in assessing workplace and situational hazards through formal hazard assessments, survival drills and field level risk assessments, incident safety officer, and leadership for safety excellence training to enable workers and supervisors to be better aware of their surroundings and institute effective hazard controls. This is accomplished through: Sound level testing that provides the department with an analysis of noise hazards and potential exposures. Data collected was useful matching exposures to required hearing protection as identified in the Alberta Occupational Health and Safety Code. Awareness of near-miss incident reporting has improved. Creation of Special Operations Teams, including the technician level Technical Rescue Team (TRT) for rope and confined space rescue, a Water-Ice Rescue Team with a high-performance airboat for water and ice rescue, and Airport Rescue and Firefighting (ARFF) services for the municipal airport. It is the primary goal of the Training Branch to coordinate training and education for all the members of SCES to reach operational effectiveness and provide resources to aid in reducing the potential for workrelated injury and illness. Recently the Training Branch created an Occupational Health, Safety and Training Branch Strategic Plan. This plan calls for the expansion of physical resources in a phased-in approach in order to overcome the gaps in service delivery currently identified. Today the staff of the Training Branch is co-located throughout Strathcona County and, as such, is not all working from the same location at the same time. However, the construction of Station 6 will provide an opportunity for the first time in the history of SCES for all Training Branch staff to be located in the same location working under the guidance of a Deputy Chief. It is worth noting that this four-person branch has been functioning short staffed for approximately one year due to an extended absence of one individual. This has meant that the Lieutenant has been acting in the Captain capacity, leaving the Lieutenant s position primarily vacant. Occasional secondment Page 98

108 opportunities utilizing staff from the operations side have assisted in the completion of short-term specific tasks. This vacancy has severely impacted the ability of this group to fulfill the on-going training requirements for this department. This has resulted in the branch working in a status quo environment, being reactive rather than taking a proactive approach to development and delivery of programming. In addition, the department has been unable to measure its safety performance and has begun to lag behind since benchmarking practices are not being monitored. This ultimately means they cannot steer safety behaviour, thus, are limited to correcting after-the-fact issues versus preventing the incident from occurring in the first place. The lack of technology is also hindering this workforce as it requires access to on-line training, a records management system, and more current efficient and effective audio-visual classroom technology to deliver its programming to in-service crews. As mentioned, SCES operates from three stations staffed by full-time personnel in the urban and suburban areas and two stations in the rural area staffed by part-time firefighters. The full-time personnel respond to all calls for service within Strathcona County while the part-time staff perform first-responder roles in specific rural districts of the County. In addition to being firefighters, SCES members are either registered as Emergency Medical Technologist-Paramedics (EMT-P) or Emergency Medical Technicians (EMT) licensed with the Alberta College of Paramedics. The full-time staff follow an extensive Human Resource Development Policy which incorporates standards such as National Fire Protection Association 1001, 1003, 427, and 1021 and extending to apply degrees for senior ranking officers such as Platoon Chiefs and Assistant Platoon Chiefs. The part-time firefighters follow a different stream and are provided with in-house fire suppression and rescue training; most have not completed training to the same NFPA standards level as the full-time staff. The branch needs to be congratulated on the recent introduction of a progressive Officer Development Program focused on the new company officer development. However, existing officers have been grandfathered and as such require back-fill education in order to ensure that all officers within SCES are equally certified and consistently trained. It is unlikely the Training Branch will be able to sustain its workload with its current personnel resources, and a permanent solution must be implemented in order to satisfy the 2012 minimum training requirements. This may be best accomplished using in a phased approach, commencing with the increase in human resources and the development of appropriate training facilities augmented by the introduction of proven technology supporting incident command scenario training and advanced driver simulation technology. Page 99

109 The Training Branch should have its own stand-alone inventory of equipment ensuring that it remains operationally independent. The Branch should develop realistic desired outcomes (performance indicators) that are both achievable and measurable so it can add resources incrementally as they are actually needed through a strategic approach that can be budgeted in a fiscally responsible manner. This creep, crawl, walk, run approach will ensure that the Training Branch and the department add resources objectively and efficiently. The Training Branch needs to demonstrate improved safety diligence by increasing near-miss reporting at the time of actual incidents while also providing dedicated Incident Safety Officers at the majority of emergencies during day and night time hours. The branch should leverage its resources by implementing regular in-service skills maintenance training and drills. This can be accomplished by assigning Branch Instructors and/or Training Officers to all in-house certification courses and recruit training classes. While doing this, it is imperative that the Training Branch ensures data input and records maintenance are accurately collected moving forward and from historical perspective by going back as far as the accurate records permit. The entire department would benefit from a robust records management system. An easy and timely fix may be simply investing in up-to-date modules provided in the in FDM records management system it already owns. In order for the Training Branch to meet the department s mission, the department needs to commit to provide sufficient resources to support this branch by implementing a strategic phased-in approach over the next five years. The results of meeting the specific requirements identified in SCES Occupational Health, Safety and Training Branch Strategic Plan will be: Members are adequately prepared for their tasks and decision-making through regular, dependable training opportunities by accessible delivery of training messages using pertinent in realistic training adjuncts. Defending against liability for department stakeholders through the measurement of optimized skills, knowledge, and abilities of its members. Processing and mentoring safety initiatives that stimulate a safe work culture. Advancing leadership development through education, diversified career opportunities, and succession planning. Because the fire service is constantly evolving, it is imperative that the bulk of the mandated training should not be primarily limited to the new recruits. The experienced firefighters do benefit from continuing education of industry accepted training while in-service. It is vital to train all firefighters in the skills and knowledge needed to safely and effectively work in today s high performance emergency Page 100

110 service industry. Training officers and instructors need to establish educational opportunities around the introduction and mastering of skills related to new technical subjects by incorporating this learning into effective adult education techniques. The figure below summarizes the current status of the training components of the Strathcona County Emergency Services department. Figure 44: Summary of Training Components Provided Training Component Initial Training of Personnel Conducted By Firefighter Training Required Prior to Scene Response Firefighter Training Required to Leave Probation/Trainee Status Established Minimum Training Hours Annually Consistent Officer Training Provided Consistent Driver/Operator Training Provided Individual Responsible for Training Program Number of Certified Fire Instructors in Agency Are All Company Officers Trained in Instructional Technique Annual Training Plan Prepared and Followed Does the Training Program Have Software and Data Support Does the Training Program Have an Identified Program Budget Training Resources Available Standard Training Curriculum Manuals Used Lesson Plans Utilized Night Drills Conducted Multi-Company Drills Conducted Regional Disaster Drills Conducted Periodic Physical Performance Evaluation to SCES Full-time candidates come pre-qualified to NFPA 1001 receive 11-week orientation program. Part-time receive in-house training. 11-week orientation program for full-time coupled with mentoring program. Recruit program for part time delivered once a week for 11 weeks. Yes, successfully complete orientation training program. No specific timelines- Yes to specific annual recertification for EMS recertification and special ops disciplines. Only for new officers (SOAP Program); Senior and tenured officers not included. Limited. District Chief- this requires attention. Approx. 20 staff trainers of various disciplines. Minimal exposure as covered in NFPA Annual schedule is guideline for both full-time and part-time suppression staff only. In-house programs that are available underutilized for fire. Uses AHS software to track EMS compliance. Yes, budget is acceptable for the resources responsible for program delivery. Formal classroom(s) inadequate. Each station has training area. Renovations to Station 4 will improve accommodations. AV inadequate at this time, no dedicated equipment, must be borrowed from Ops, minimal Training library, minimal practical live fire training conducted out of town at the Drill towerrented from Edmonton for new recruits only. IFSTA, Alberta Health Services Training materials. Lesson plans inconsistently used -rarely used Rarely, except for part-time four times a month. Rarely No practical training. Quarterly table top exercises for management level only. No formal program, observed through annual training Page 101

111 Training Component Ensure Personnel Maintain Physical Capacity to Perform Duties Is There a Periodic Skills Competency Test to Ensure Personnel Maintain Competency in Job-Required Skills Post-Incident Analysis Safety Officer for Drills Training Records Recertification Requirements SCES and on-job observation by Supervisor. No formal program for fire. EMS follows QP requirements as regulated by AHS. Rarely conducted for all major incidents-nothing formal. Supervisors assume responsibility at all manipulative drill sessions- nothing formal. Some individual records, mainly used for recertification tracking. EMS uses AHS proprietary program for quality control purposes. FDM program underutilized. Alberta Health Services full-time Fire and EMS, ASCES Branch does part-time. Third party outside resources do Special Ops recertification. Recommendations: SCES should work with the County to increase the staffing dedicated to the training function. The department should develop appropriate training facilities augmented by supporting technology. The Training Branch should have its own stand-alone inventory of equipment, including apparatus, and ensure that it remains operational at all times. The Training Branch should develop realistic and obtainable outcome goals. SCES Training Standards Incident Command Currently SCES utilizes the training programs provided by the Alberta Health Services (AHS), and operational staff are presently completing up to the minimum of 200 series relating specifically to Incident Command. In addition, command staff are receiving ICS 300 and 400 training. The AHS training has four distinct levels each geared to specific role and involvement of the end user. Strathcona Emergency Services trains its entire staff to Level 200, which is not the preferred level for this emergency service. In 2012, the Blue Card Training Program and the new Incident Command Standard Operating Guideline will be added to the in-house training program. The Blue Card program will augment the Level 200 incident command training and is included in the Training Branch 2012 work Page 102

112 plan. The Training Branch will add two more in-house trainers in 2012, for a total of four for each platoon. These four trainers will be responsible for training all SCES personnel. This training will be included with incident command, firefighter safety, and firefighter fire ground skills. Recommendations: Consider the introduction of leading edge incident command simulation capabilities. Purchase and utilize an incident command simulator to assist with the development of the officer rank and provide training and incident command. Consider using low tech Skill Sessions type programs as a table top training exercises for inservice crews to be used for officer development and incident command training. Safety Procedures SCES has a set of safe work practices referred to as Safety Codes and referenced in the Red Binder, which covers all occupational health and safety issues for the entire department. All SCES staff are provided access to the Hazardous ID folder located on the N drive. On-duty staff can review this training material online as per the training schedule. SCES currently participates in the Near Miss reporting program. The intention of this program is to prevent serious injuries and death of firefighters during emergency incidents through careful monitoring of all near miss incidents and actual events. This allows SCES Administration to identify trending and/or gaps in training and skills development for emergency responders. It is critical that the Training Branch focus on Near Miss scenarios incorporated in performance indicators in order to ensure the health and safety of its members by learning from mistakes of others. It is well documented that most, if not all, injuries and/or deaths associated with emergency responders are preventable in nature. Emergency responders should take calculated risks. Complacency and lack of training are real hazards and provide the most opportunities for improvements in health and safety efforts, but this can only occur if health and safety is a key focal point of the service delivery of the department through the auspices of the Training Branch. SCES is generously supported by the County through the budget process, and it has quality personal protective equipment (PPE) and a modern fleet of apparatus. The mandatory and effective use of this equipment is essential in reducing the unnecessary short-term and long-term exposures to the myriad of hazards found at emergency scenes. It is only through training that the equipment will protect as it is intended to. While legislation such as Alberta Regulation 102/2003-Workers Compensation Act- Page 103

113 Firefighters Primary Site Cancer Regulation is admirable, it is after-the-fact protection and in reality it does nothing to prevent such inherent risks. It must be the goal of SCES to do what it can to ensure that none of its members need to utilize the provisions of this legislation. This can only be achieved through prevention by mandatory use policies for PPE and training and education of all members. Recommendation: Ensure that both full-time and part-time suppression staff receive similar formal basic safety training prior to being allowed to respond to emergency incident scenes, regardless of their role. Structural Firefighting Very little structural firefighting is provided for tenured members of this department. This is primarily due to a number of key reasons such as: The Training Branch staffing levels The minimum on-duty staffing levels in operations prohibits taking crews out of service The lack of training facilities to provide year in-service access This has been identified by the Training Branch and hands-on practical training will be included at the upgraded training facilities in These drills will not, however, replicate live fire scenarios and will be simulations only. At present, the bulk of the hands-on structural firefighting training is given to recruit firefighters as part of the recruit training program and must be delivered out of town at a cost of approximately $8, a day (plus additional costs for renting adjunct equipment). It is not logistically possible to send in-service crews to Edmonton to train (which would leave Strathcona County vacated). It is also cost prohibitive to do this using overtime for backfilling vacancies or to call in staff simply for training. Ideally, SCES needs to be self-sufficient and have its own facilities. SCES needs to strike the right balance between simulated training and manipulative hands on training. Ideally, SCES would benefit by being self-sufficient and having its own facilities within Strathcona County. Recommendation: SCES should develop internal training facilities and equipment to enhance the overall training program and ensure available operational resources. Page 104

114 Wild Land Firefighting For the past several years wild land firefighting has been a focus and key concern for many municipalities in Western Canada. Strathcona County has experienced its own localized disasters caused by uncontrolled wild land fires in Surprisingly, even after experiencing first hand these large wild land fires, SCES does not provide ongoing formal training to its emergency response personnel. Recruit firefighters receive wild land firefighting certification. The 2012 training plan is scheduled to provide some wild land incident command training to SCES personnel. All personnel are currently NFPA 472 certified but there is no formal mechanism by which to provide refresher training or continuing education. Recommendation: The training division should work with department leadership to formalize refresher training for all certified wild land firefighting personnel. EMS Skills Due to current hiring practices, all new staff joins SCES with a minimum of EMT-level medical training. This initial training and certification is provided in the private sector and community college level institutions. This prequalification reduces the need for the Training Branch to focus on EMS training and skill development other than recertification and the introduction of new equipment. The jurisdiction having authority over all such EMS training is now Alberta Health Services (AHS), providing oversight specifically to delivery of pre-hospital medical care and land-based ambulance transportation. Ongoing discussions with AHS are occurring relating to the oversight of ambulance services since this has dramatically changed how SCES delivers training to its members. It has been suggested that the level of training has been somewhat reduced from the previous levels primarily due to the lack of direct access to the Medical Director. This may result in more medical training being added to the annual training requirements. AHS has provided some quality tools such as a specific on-line web site that provides accountability tracking and oversight. Each member of SCES is tracked using this online system, which results in the creation of weekly reports provided to the Training Branch. It also allows Administration to generate weekly reports as required, which help ensure that all staff remain compliant with the AHS minimum EMT and paramedic level requirements. The premise of this web-based training has proven to be a Page 105

115 valuable asset to the understaffed SCES Training Branch. The Training Branch is engaged in dialogue with AHS to increase the amount of web-based training for future programs. Of all the training provided to members of SCES, it is the EMS training that dominates the training schedule by virtue of the mandatory requirements stipulated by quality assurance practices of AHS. Currently all SCES staff receive mandatory practical training in first aid and CPR on an annual basis in order to accommodate the Advanced Life Support (ALS) certification training. This training is provided to full-time staff only as the part-time rural firefighters are not registered as EMTs or Paramedics. Emergency medical response training has not been a focus for the part-time suppression division and is one of the areas in which the fire fighters are not trained to the same levels across Strathcona County. Water-Ice Rescue Training In 2011, water-ice rescue training was provided in-house to all staff by the SCES Water Rescue Team. New Recruits Today many of the new staff hired have no previous experience, putting additional pressure on the SCES Training Branch to be able to provide training and skills development in-house. Typically anywhere from 60 to 100 candidates apply for 8 to 16 positions within Strathcona Emergency Services. In the last recruit class, more than 50 percent of the recruits did not have prior work experience, but all are externally certified to NFPA 1001 prior to hiring; this forms the foundation upon which the recruit training is built. There is a challenge for all instructors who have a group with mixed experience levels within each class. This results in focusing the training towards those individuals with minimal skills and knowledge and less experience. Thus, when recruit training occurs, it quickly becomes the focus for the entire department and results in a consumption of the majority of time and effort for the Training Branch at the peril of the other training requirements. Each new recruit comes prequalified with a minimum of NFPA 1001 qualifications. The Strathcona recruit training program is an 11-week comprehensive program. The recruits are provided with a basic orientation package. Upon completion of the recruit training, a probationary binder is provided to each recruit to ensure that they are capable of mastering certain skills and training levels during this period. Each new recruit receives basic low angle training utilizing tripods, basic rigging, rescue and auto extrication and receives basic task level skills utilizing ladders, rope work raising equipment, poles, nozzles, use of axes and saws and forcible entry. Page 106

116 Part of the orientation also includes mandatory live fire training. Currently SCES cannot conduct live fire training at any of its training facilities. The recruits travel to the City of Edmonton to rent the city s fire training facility for live fire training. This includes a couple of days of tower runs. The live fire training culminates the many weeks of theoretical training and completes the orientation training for the recruits. Hazmat Training Hazardous materials response and mitigation is identified as one of the core responsibilities of the SCES in the bylaws, yet it does not appear meet the certifiable response standards necessary to deliver these services affectively. The training for this discipline is complex and specialized. This training must form part of the core training provided to all members of Strathcona County fire for both full-time and parttime personnel. The training and skills development must match the actual real community risk and the actual response capabilities of SCES staff. The low frequency, high risk nature of these emergencies requires SCES to a focus on being compliant to the industry standards and best practices. The basic hazardous materials awareness training provided to members of SCES is covered under NFPA 1001, which is also the minimum hiring standard for SCES. The new training facility could result in an additional revenue source for the department based on regional training availability. Although all recent hires come with this level of training as a prerequisite, existing members may have received very little scheduled training pertaining to hazardous materials. In addition to actual hazmat training and response, specialized equipment that is critical to effective, successful, and safe rescues needs to be acquired and matched with the appropriate Standard Operating Procedures and/or Guidelines. This is a difficult service to provide and a difficult discipline to sustain once initiated. In many of the core fire service components, SCES lacks continuing education training opportunities. The Training Branch needs to prioritize the initial training to focus on the decontamination capabilities for Strathcona emergency responders. This decontamination training can also be applied to emergency medical response scenarios where patient decontamination must occur after treatment or prior to transportation to the hospital. This gap has been identified and is included in the 2012 SCES Training Branch work plan, which would include awareness training for all personnel and operations level training for all officers. There is no intention for Strathcona County Emergency Services to train and to respond at the technician level as these services are provided through contract with Edmonton Fire and Rescue and local industries that have expertise in the response and mitigation of hazardous materials incidents. Page 107

117 One of the ultimate goals of SCES is to have all members trained to the basic operations level to facilitate emergency rescue and decontamination prior to the arrival of support services from other jurisdictions. This would also provide capabilities for response to multiple and simultaneous incidents throughout the County. Recommendation: Consider training part-time fire fighters in the techniques of hazmat decontamination. Vehicle Extrication Auto extrication response and training is one of the strengths of SCES. Every platoon is provided with the opportunity to practice auto extrication techniques while on duty. This training is provided by inhouse auto extrication trainers to assist with new equipment and/or new auto extrication techniques. Defensive Driving Emergency services personnel often drive vehicles in emergency situations and are challenged by the size of the vehicle and the environment in which they work. Crashes of emergency vehicles are the leading cause of death or serious injury for emergency services personnel, particularly those involved in emergency medical services. In fact, ambulances are 13 times more likely to be involved in crashes that private vehicles and riders in ambulances are 21 times more likely to be killed than in private vehicle crashes. Oddly enough, most ambulance crashes occur in good driving conditions, in daylight, and at intersections. 18 Every two years, SCES staff members receive defensive driving or professional driving improvement courses. In addition, three hour evaluations for those that are in step-up positions are conducted periodically or as requested by the senior officer. Recommendations: Consider purchasing advanced driver simulation technology to be shared with other County departments on a cost recovery basis (i.e., Police, Transit, and Public Works). Provide specific training for all fire and EMS driver/operators both full-time and part-time. 18 Statistics obtained from Fire Track Emergency Vehicle Crashes 13.6, produced by North Memorial Medical Center, Minnesota. Page 108

118 Special Rescue High Angle Rope rescues are provided by the 16 members who comprise the Technical Rope Team (TRT). All are trained to the technician level and the entire program is overseen by a platoon chief assigned to this discipline. The Platoon Chief functions as the team leader overseeing the annual training schedule, the training plans, and the skills development while ensuring that the recertification of members is acquired. Consideration should be given to eventually reassign the special operations oversight to one member of the Training Branch. This would ensure consistency and quality control for the programs amongst all platoons. Confined Space SCES provides confined space emergency response through the utilization of the same 16-member technical rope team. The team currently utilizes an online confined space training program which is a prerequisite for the Hands-Confined Space Training. Public Education SCES provides limited public training such as: CPR and first aid training to the public Fire smart training Training for new mothers Fire Inspection Training No specific in-service training is provided to fire suppression staff. Each member is certified by the Province and is registered. Training is provided to members of SCES when changes are made to the provincial codes through the use of mandatory updates. The frequency of these updates ranges from two to three years. SCES is planning to introduce a new in-service Inspection Program in the very near future. As the frequency of fire inspections increases, the Training Branch will need to introduce a robust training program to all members of SCES who will be conducting inspections. This training will be provided in part through the auspices of the Fire Prevention Branch (FPB) and will follow a similar track for that of the Calgary Fire Service Company Inspection Program. This program will allow fire suppression staff to conduct basic minimal inspections and flag major code violations to be followed up by the FPB. Page 109

119 Minimal Training for Each Position Strathcona County Emergency Services Where possible, SCES attempts to be NFPA compliant. The new recruits follow NFPA 1001, upon completion of their probationary period they are put through NFPA 1002 training, and NFPA 1031 safety codes. The natural progression is for staff to follow NFPA 1021 and 1041 officer training; by the time they are confirmed in the Lieutenant position, they are then put through the fire officer level 2 programs and the incident safety officers level. These levels are supplemented by SCES with specialized training through three courses from the Administration Branch. As they progress through the ranks, the NFPA fire officer program is supplemented by making the content more applicable to SCES. Recommendation: Provide specific training for all existing officers that compliments the training provided to new officers. Number of Certified In-House Instructors Strathcona County Emergency Services uses a train the trainer approach where possible to provide adequate internal trainers. To date, there are 20 staff members capable of delivering specific training to other members of SCES as required: 10 CPR 6 ACLS 3 ITLS 1 ACLS Coordinator Recommendations: Establish dedicated training resources to the part-time division for consistent oversight. Consider adding an additional new Lieutenant in 2013 to coincide with Station 6. Training Program Goals and Objectives Until 2009, the SCES Training Branch did not exist; there is limited history from which to build future goals. However, the Training Branch is currently working closely with the Operations Branch to identify areas of focus in the upcoming training year. This includes ensuring that all personnel have attained and Page 110

120 are maintaining all required certifications. Additional goals and objectives are being developed annually as the Training Branch grows and matures. Recommendations: Develop realistic desired outcomes that are both achievable and measurable, so the Training Branch can add resources, human and capital, incrementally through a strategic approach. Develop Training Branch annual performance indicators and report card. Software and Data Support On the EMS side, the Training Branch utilizes the AHS web-based training and records management system to fulfill its requirements and meet the Provincial requirements. The Training Branch is researching a software package called Yard Stick hoping to finalize the requirements for a software platform going into 2012, which will help deliver consistent fire and rescue and administration of training, including compliance, marks, and tracking of training. SCES does currently own a module of the FDM software records management system, but it appears to be underutilized. An alternative to launching a brand new format could be to update the current FDM program and add the appropriate modules as required. Recommendation: Implement an electronic training records management system to increase efficiency in record keeping and training documentation. Training Classrooms Station 4 has formal classrooms and small board rooms, and each fire station utilizes the common kitchen area for training. These function more accurately as in-formal classrooms versus formal classrooms. The current station training facilities need improvement, which has been identified by SCES; plans have been made to redevelop Station 1 in the very near future, as was done at Station 5. Audio Visual Equipment Presently, the Training Branch utilizes portable computer projection equipment which must travel between locations. This requires scheduling and pre-planning in order to accommodate training opportunities. The casualness of this approach and lack of dedicated equipment is a barrier to in-service Page 111

121 training. The Training Branch has identified new technology which incorporates smart whiteboard capabilities. The training capabilities need to be similar in every fire station to ensure that timely, realistic, measurable, consistent training is provided to all on-duty staff when required. The easier it is to set up the equipment, the more likely training and education will occur. Main Training Library The Divisional Chief s Office stores and tracks all items being loaned out. These training aids may need to be made more accessible to staff if they are to be fully utilized. Consideration should be given to relocating these training aids to a secure area within the Training Branch. Formal Drill Ground Area The present Station 1 has a limited means of providing practical drills for those working from this site. Due to the minimum staffing levels, it is unlikely that in-service Tower Runs can be utilized without causing potential delays in emergency response while crews are taken out of service. The lack of these training opportunities negatively impacts all emergency responders who are beyond their first-class designation and/or who do not belong to a specialized operation team (as they have the greatest opportunity for hands-on practical training). Once the construction of Station 6 is completed, SCES will still lack its own dedicated training complex. Station 6 will undoubtedly be an asset for SCES, but it ultimately has its limitations and will remain as a multi-use facility that includes a fire station, administration offices, and some built in training props. This cannot be considered a long-term solution for a true, dedicated training complex. Future consideration should be given for the construction of a dedicated Multi-Agency Training Center of excellence that would allow police, fire, and EMS to train indoor year-round. A complex could encompass dedicated training apparatus and props, specific to each agency s training requirements, while also encouraging collaboration and partnerships with the private sector for purposes of training. Although initially a costly venture, it could provide the necessary environment for practical training for multiple agencies within the County that may be leveraged through collaboration and partnerships. Other agencies such as utilities, public works, and transit may also utilize the driver training simulation equipment. There may be opportunities to receive grants from other levels of government to assist through stimulus funding or emergency preparedness grants. Locally, Calgary Fire is a great example of a modern in-door facility that provides practical training all year round. Page 112

122 Recommendation: SCES should work with the County to begin planning and budgeting for a separate formal training center that can be used by a number of agencies and disciplines. Another viable option is to consider portable mobile training aids such as flashover trailers and firefighter survival trailers that can be leased and/or purchased. If purchased, revenue generation possibilities may exist that allow for full cost recovery. The portability allows these aids to be brought to the firefighters instead of bringing firefighters to the training. These types of training apparatus can be used as a stop gap until a permanent complex can be built or used to supplement facilities at a complex. There is a small training prop at Station 1, affectionately referred to as the dollhouse, which provides some roof and ventilation training; it is available to a few staff on-duty and only if weather is permitting. Currently, there are no practical airport rescue firefighting props and/or training readily available in or around Strathcona County for SCES. Standard Manuals Utilized and Adopted SCES utilizes IFSTA training manuals for the fire-specific training and the Provincial AHS ACLS text for EMS-specific training. Individual fire officers are supplied with textbooks of their choice as they progress through the ranks. Lessons Plans The current culture in SCES does not support the use of standardized lesson plans for training sessions. The resources are made available to all officers, but this material is not well utilized. This lesson plan material is provided on-line including power point training presentations created by the Training Branch. The use of standardized training materials such as lesson plans is critical for in-service use for both career and part-time suppression staff. The use of these types of basic instruction materials ensures consistency and conformity to Department Standard Operating Procedures and/or Guidelines. The use of standardized training materials helps provide realistic, measurable, consistent, verifiable, and safe training. Although the current audio and visual equipment can be occasionally supplied it must be prescheduled. Ideally each station needs to have its own equipment so that lesson plans can be readily available and easily accessed by the in-service officers through their personal computers. Page 113

123 Recommendation: Develop and mandate the use of formal lesson plans for all training sessions, particularly those that are manipulative in nature. Annual Training Hours Mandatory hours for training per person fluctuate depending on the specific discipline held by a member, specialty team, step-up training, and/or job specific operational level at which each member is functioning. The present in-service training hours are not being tracked. Currently, all four platoons are doing something different. The need to accurately track training by discipline and number of hours is critical to ensuring adequate levels of competency are achieved. Recommendation: All training should be documented and maintained to ensure that each employee s skills and abilities are routinely reviewed and enhanced. Night Drills Currently there are no limitations on night training opportunities other than weather and daylight issues. The majority of the training is provided during daytime hours when support is available through the Training Branch. Night time opportunities for full-time personnel are underutilized. Part-time fire suppression utilizes primarily night training since this is when they schedule their weekly training sessions. The introduction of on-shift Training Officers would accommodate flexible training opportunities. By incorporating night training into the training schedules, training hours can theoretically be doubled, since the majority of the training is currently taking place on day shift from Monday to Friday. Multi-Agency Drills Multi-agency training opportunities are rarely utilized. As training expertise and specialized instructors become more difficult to acquire, SCES is urged to utilize this collaborative approach for training inservice and non-in-service related opportunities. High-risk occupancies and hazardous material industries provide excellent opportunities for collaborative training between public sector entities who respond to emergencies along with the private sector. These training opportunities are not limited to emergency services and should also include emergency management personnel who regularly operate in the emergency operations center and/or in emergency support operations. These training Page 114

124 opportunities should include regional emergency disaster response and/or public awareness campaigns for emergency preparedness specific to hazards in the community. Regional Disaster Drills Quarterly high level paper or table top exercises occur at the regional level but are directed more to the command level. Disaster training at the operational level is very rare. There is much room for improved training in this area. This type of training usually is costly and consumes a lot of resources, but it is critical to train before a disaster strikes. Role clarity and core responsibilities need to be clearly defined among all agencies. This is a great opportunity to include all public and private sector regional resources. Recommendations: Consider increasing the number of multi-company drills conducted with surrounding agencies to enhance the cooperative and coordinated efforts already in place. Consider partnerships with other agencies, departments by creating a joint Multi-Agency Training Complex through expanding current plans at either station 4 or 6. Minimal Physical Abilities Testing for Existing Members No minimal physical ability testing occurs after the initial hiring process. The Training Branch is planning to introduce a comprehensive Air Management Training pilot program in It is hoped that after the initial pilot in 2012 this will become an annual mandatory training event. Air Management Training and Awareness is a critical life safety component for all firefighters wearing self-contained breathing apparatus as limitations and expectations of air management need to be fully disclosed in order to work safely while wearing such apparatus. Self-awareness training is critical to self-survival in hostile environments. This is a great initiative and is becoming a common practice in the fire industry. Minimal Skill Competency Training It is not the current practice of SCES to conduct any minimal skill competency training. Nothing formal or documented occurs after recruit orientation training is completed. The Air Management program can satisfy some of these basic skills requirements by including the drills above with annual mask Fit Testing. Page 115

125 Recommendations: Consider implementing a periodic physical performance evaluation to ensure personnel are physically capable of performing critical tasks. Consider implementing a program to periodically evaluate member skill competency to ensure that personnel are continually able to perform critical tasks. Post Incident Analysis Currently there is nothing formalized the area of post incident analysis, although the Training Branch is reviewing some options and possible formats. In 2009, the After Action Report on the wild fires was created and is being considered as the model for SCES to follow in the future. Recommendation: Consider conducting Post-Incident Analysis after each major occurrence. Safety Officers Used for Manipulative Sessions A formal designated Safety Officer is rarely used during training exercises. SCES recently started a new program called Field Level Risk Assessments, which are used during training exercises. In this program, the officer completes a form which identifies the inherent risks associated with the exercise and this permits an informal discussion identifying the issues with the crews before proceeding. The officers participating assume the responsibility of the Safety Officer as per the Health and Safety Act, and during formal training sessions the rank of Lieutenants and up are considered qualified Incident Safety Officers as per NFPA Recommendation: Consider adding on-shift platoon trainers to assist the after-hours training and provide safety officer response. Training Records All the training records from are stored on the County server in individual folders under each person's name and cross-referenced into a software package called Compliance Suite. This program records the number of course hours and a copy of the certificates for each individual member of SCES. This program has minimal reporting capabilities. Page 116

126 These records are used to show compliance with mandatory training. These training records do not track in-service training but, instead, are used for compliance re-certifications and mandatory training depending on the specific discipline. This is not a records management system generating regular reports that are used by SCES Supervisors or Administration staff. Training Equipment Inventory Management There is no formalized program being used by SCES today. However, an equipment inventory system is a focus for the Training Branch in It may help to assign one officer from each of the stations to be responsible for the station house and represent all four platoons and assist with the health and safety requirements of the station. Today the tracking of training materials on loan is done manually on a spread sheet from the Divisional Chief s office. As the Training Branch begins to acquire valuable equipment, an inventory and tracking system is critical for not only inventory control, but also for preventative maintenance, insurance purposes and as a benefit in planning and budgeting through a formalized capital depreciation program that can assist with the eventual replacement of equipment. Recommendation: The Training Branch should have its own inventory of equipment, including apparatus, ensuring that it remains operationally independent. Training Program Priority-Adequacy of Training Program Budget Given the resources presently assigned to the Training Branch, the operating budget appears to be adequate. The Training Branch budget was 1.9 percent of the total SCES budget for Figure 45: Training Program Budget and Staffing Budget Year Department Budget Training Budget % of Total budget # Staff ,860, , % 212 total: 134 FT, 78 PT 2012 Proposed 26,452, , % 236 total: 158 FT, 78 PT The capital funding for computer equipment, training products, and equipment dedicated for training purposes (such as self-contained breathing apparatus) will be the focus of future capital investment projects. Page 117

127 Basic Demographics for Training Considerations Strathcona County Emergency Services The department demographics for full-time and part-time personnel are not well assimilated. The department would benefit by having a clear understanding of the demographic profiles that exist. This information could assist in identifying issues pertaining to recruitment and retention of part-time suppression staff, providing applicable adult education practices profile, current and future program development, skills and experience gap analysis and succession planning. The following is a synopsis at a high level of some of the basic demographics as of 2011 for SCES: 104 staff are 40 years old or less Of these 104, approximately 50 of them are less than 30 years old 13 of these are less than 25 years old 29 are 41 years of age and older 10 are over 50 years of age 91 have less than five years of experience Of these, 12 have one year or more experience 14 have less than one year of experience 32 have between 6 and 10 years of experience 21 have between 11 and 20 years of experience 16 have between 21 and 20 years of experience 2 have between 31 and 35 years of experience Recommendation: Develop and maintain a complete SCES personnel demographic profile database, including career and part-time staff. Future Demands on Training Branch The Training Branch has difficulty providing support to the specialty teams that currently exist. The Training Branch cannot fill its mandate of safety. It is unable to provide a safety officer on emergency scenes and this activity defaults to the officers involved in incidents. The difficulty arises as each officer performs these tasks to the best of their ability but in an inconsistent and somewhat improvised means. Page 118

128 The practical and manipulative training opportunities need to be a focus. The longer term plans should include consideration of a standalone multi-agency training complex that will permit training all year round and a collaborative funding approach. SCES is in good shape from a succession planning perspective, but has very real challenges because of the inherent lack of experience currently employed in the operational division. This is a young and talented employee base, but it has an inexperienced workforce that requires a strategic focus for training and skills development that will ensure the department is capable of providing the level of emergency services that meet the expectations of today and in the future. This young department will depend upon the in-service training and mentoring that only an in-house training branch can provide. This equates to a concerted investment for SCES for its most valuable asset its members. SCES should be aware that attempting to train all personnel in specialized fields such as hazmat or rescue may be a burden on operations staff and is typically inefficient. This deluge of training will not guarantee proficient response in all disciplines and will eventually compete against other initiatives required during the in-service time. Annual certification and/or competency levels will suffer as the training becomes saturated. It is well known that low frequency, high risk scenarios make emergency responders vulnerable and it is these types of scenarios that require training concentration in order to ensure proficiency and effectiveness. SCES should focus on providing services that are required in the community and not attempt to broaden service levels to include all special ops levels and/or training since this is not sustainable in a composite fire service. Instead, it would be a worthwhile exercise to collaborate with the surrounding municipalities sharing the burden of special operations amongst them depending on the needs and circumstances of each of these unique communities. Sharing special ops specialties amongst mutual aid and auto aid neighbours is a responsible and sustainable approach to providing these services today and in the future. Recommendations: SCES should be aware that attempting to train all personnel in specialized fields such as hazmat or other special operations may be a burden on operations staff and is typically inefficient. Consider making the Field Level Risk Assessment Program mandatory for SCES. Page 119

129 Fire Prevention and Life Safety Services Strathcona County Emergency Services An aggressive risk management program, through active fire prevention, is a fire department s best opportunity to minimize the losses and human trauma associated with fire. Robert Klinoff, author of Introduction to Fire Prevention, 2007, outlines the perspective as follows: One of the true measures of a fire department s effectiveness is the amount of loss experienced in the community or jurisdiction. If hazards and unsafe acts can be reduced, there will be a resultant reduction in the area s fire experience. In order to reduce the losses due to fires, effective, focused fire prevention effort must take place. A community s fire problem should be addressed in a continuous manner whereby each resource and function supports the reduction of the incidence of fires. This cycle includes the following: Public education: Awareness of hazards, prevention, and what to do if they occur. Engineering and code enforcement: To ensure that community structures are appropriately constructed and maintained. Fire suppression: Fires are mitigated when there is a failure of education and code enforcement. Fire investigation: To determine fire cause and create a method or process for mitigating future incidents. The most effective way to combat fires is to prevent them. A strong fire prevention program reduces loss of property, life, and the personal disruption that accompanies a catastrophic fire. The impacts of fire are significant; it is reported that nearly 50 percent of all small businesses that are forced to close due to fire never re-open. The economic consequence of a fire is estimated to be 2.5 times the actual damage that the fire causes to a structure and its contents. Most North American fire services that advocate Fire Prevention initiatives direct their public education activities toward assisting the general public by trying to reduce common hazardous conditions and prevent these dangerous acts from occurring in the first place, and in doing so, reducing the probability of needing to muster an emergency response to such incidents. They do this through public presentations, issuing fire safety information, and utilizing local media formats and public service advertisements and announcements (PSAs) throughout the community. This is usually coordinated by specific fire prevention resources that are dedicated and fully trained in this discipline from within the department. The old adage an ounce of prevention is worth a pound of cure is the foundation of all activities generated in properly established and resourced Fire Prevention Divisions. Page 120

130 This cannot occur without a concerted and focused effort directed towards Fire Code Inspections and Life Safety Education. These are two distinct areas of importance both requiring specific areas of expertise. While not practical, it should be the goal of all fire services to never have a fire death or significant uncontrolled fire. While prevention efforts will never totally eliminate all uncontrolled fires from occurring, it is proven that these same efforts can and do minimize the injuries, deaths, and severity of property damage caused by fire within its community simply by preventing a fire from occurring in the first place. This can be accomplished affectively and most safely by having fire service crews increase their familiarity with the buildings within their response districts. This is easily accomplished through frequent pre-incident planning surveys of target hazards and other buildings. While it is the prerogative of the jurisdiction having the authority over the fire service to determine the level of planning it supports within its jurisdiction even those who determine not to plan are in fact doing a form of planning since, a failure to plan is in fact a plan for failure. Even with the most conscientious code enforcement and public education efforts, fire departments must be prepared to aggressively fight the fires that do occur. SCES must take a balanced and coordinated approach to accomplish these goals by using fire inspectors, public educators, and inservice crews in the right mix to provide these services. SCES works under the auspices of the Municipal By-Law , Safety Codes Act (SCA) and the Alberta Fire Code 2006 (AFC). Strathcona Emergency Services Bylaw covers both fire and EMS within SCES. Subsection section 3.1 specifically relates to the following fire prevention activities: Preventing and extinguishing fires Investigating the cause of fires Preventing Prairie or running fires and enforcing the provisions of the Forest And Prairie Protection Act Preventing, combating, and controlling incidents The current bylaw considers any person who is duly appointed as a member of SCES, including part-time members, to be considered Fire Guardians by virtue of their appointment as a member to emergency services. Under the same bylaw, each Fire Guardian shall be given access at reasonable hours to both public and private places for the purposes of inspecting the premises to ascertain whether the same constitutes what is likely to constitute a fire hazard. Page 121

131 The bylaw is considered a major purpose bylaw and is somewhat general in nature. It is recommended consideration be given to rewrite and update this bylaw as has been outlined in the Draft Fire Prevention Branch Business Plan Strathcona County now wants to proactively enforce the Alberta Fire Code; consequently, bylaw needs to support this new approach in service delivery. Under the Safety Codes Act, Strathcona County is an accredited municipality; as such, it has a Quality Management Plan Fire Discipline (QMP) accredited by the Safety Codes Council (SCC). By virtue of this agreement, SCES recognizes that an SCC representative may review or audit compliance at its own discretion. In regard to the adherence to the QMP, Strathcona County Emergency Services is responsible for the administration, effectiveness, and compliance with this QMP that includes Service Delivery Standards (SDS). SCES can provide service delivery standards through its own staff or one or more accredited agencies. The Safety Codes Act requires SCES perform the services in an effective and timely manner. SCES should endeavour to work cooperatively with the owner and/or the owner s representatives to achieve compliance to the Safety Code Act and applicable regulations while also performing these services with impartiality and integrity and in a professional and ethical manner. Strathcona County Emergency Services is mandated to uphold and enforce all parts of the Alberta Fire Code except for nine specific areas relating to Part 4 requirements for tank storage of flammable and combustible liquids. The Service Delivery Standards (SDS) establish responsibilities and minimum performance criteria for providing compliance monitoring services under the safety code that includes the following general areas: Code advice Permit issuance Plans examination Site inspections Site investigations Variances Orders Verification of compliance Identification and follow-up of deficiencies and unsafe conditions Collection and remittance of Safety Code Council fees Issuance of the permit services reports Maintaining files and records Page 122

132 s part of the adherence to the AFC requirements, SCES is required to maintain a file system for all records associated with performing the following services: Permit applications and permits Plans, specifications, and other related documents Plans review reports Inspection reports Verifications of compliance Variances Orders Permit service reports Related correspondence and/or other relevant information Strathcona County Emergency Services is expected to monitor compliance through a program of permit issuance, plans examination, site inspection, and follow-up inspections or verification of compliance, using appropriately certified and designated safety code officers to provide compliance monitoring in accordance with the SCA and associated codes and standards. Compliance monitoring may, at the discretion of SCES, also consist of reasonable inspections of buildings to check for compliance with the Alberta Fire Code. Inspections should be administered in accordance with the inspection program and frequency schedule and will include the preparation and distribution of site inspection reports. At the discretion of the fire safety codes officer, verification of compliance may be acceptable as proof of correction to note that deficiency. Figure 46: Occupancy Classifications Assembly: Institutional: Residential (General): Business & Personal Services: Complex including: Industrial: Industrial: Group A1, A2, A3, A4 Group B1, B2 Group C - Over 4 dwelling units with common hallway Group D Group E (building only) Group F1 High Hazard Group F2/F3 Medium & Low Hazard It should be noted that the current practices of the SCES as it relates to the QMP requirements for all occupancy types in Strathcona County are that fire inspections will be completed on a complaint or Page 123

133 request basis only. The Branch will work to revise the QMP, but this is heavily dependent or whether the additional Fire Inspectors positions are approved in the 2012 budget. Fire investigations are conducted to determine the origin and cause of fires where a death, injury, or property loss occurs, the results of which will be reported to the Fire Commissioner`s Office in accordance with the administrative items regulation. A Fire Safety Codes Officer (FSCO) may arrange for additional municipal, law enforcement, agency, or other resources as required to assist with the investigation. In the event of a fire resulting in a death or where arson is suspected the investigation will include immediate notification of the Provincial Fire Commissioner. It is also recognized by the municipality that investigations of fires or explosions that result in serious injury, death, suspected incendiary activity, or complicated loss, may involve representatives or agents of the Provincial Fire Commissioner. The measurement tool inside the QMP is set at the lowest level. It is set for inspections upon complaint and/or request and investigations as set out in the SCA. What this means is that there is no regularly scheduled, proactive fire prevention inspections occurring within this municipality. This comes at a tremendous risk for not only the community at large, but also the tax payers and the municipality. Due to budgetary cutbacks, previous fire administrations in the 1990s were forced to reduce the Fire prevention Branch from five FTEs to one FTE, thus reducing its capacity to perform proactive investigations and/or inspections. The Fire Marshal`s position was the sole member of the Fire Prevention Branch prior to Since then, the Branch has added one Captain and two Lieutenants. The Business Plan recommends bringing on two new inspectors in 2012 for a total of five FTEs in the Fire Prevention Branch. It is worth noting that this will restore the SCES back to its 1990 capabilities. The current branch lacks a specific public education focus due to a deficiency in dedicated resources. The new inspectors will only be able to focus on the high-risk occupancies as a priority for 2012 and thus the division will remain at the lowest levels as outlined in the QMP. The business plan lays out a path for the future for inspections, public education, and investigations. This change in focus will result in the need for a new Inspection SOG. The High-Risk Occupancy Inspection Program will be initiated in 2012 utilizing company inspection crews. This will result in the development of a standard operating guideline to accompany this new program that will ensure that it is delivered consistently amongst all four in-service platoons. The frequency and number of inspections will be determined by the number of resources added to the Branch and the priority given by Council. Page 124

134 These options need to be presented to the City Council at the time the Fire Prevention Business Plan is introduced. Prior to the reduction of fire prevention FTEs in the early 1990s, the on-duty crews conducted in-service inspections. This reduction in fire prevention staff means these in-service inspections were also stopped. The most recent practice of the Branch has the Captain of Fire Prevention focus on a small number of annual inspections and the Fire Marshal focus on the priority of life safety education. With the addition of the Lieutenant, a select few inspections have been performed as part of the on-the-job learning and orientation. Consequently, high-risk and commercial occupancies have only had request and complaint inspections performed since then. As a result, some authority clauses need to be included in the bylaw in order to lay the foundation for enforcement. It has been the experience in SCES that pure enforcement fails and pure education without enforcement fails; thus, enforcement is rarely respected in the community. A case in point, open air burning prohibited during fire bans often results in repeat offenders continually ignoring the bans as there was no negative consequences. In 2011, fire ban recurrences have resulted in the issuing of tickets for those not comply with the bylaw. Although many of the Fire Officers are permitted through the SCA and the Emergency Services Bylaw as Fire Guardians and allowed to issue tickets, the reality is they are not doing so and these tickets are being primarily issued by fire prevention staff. Although it is relatively new to the Fire Officers, it appears that it is not popular among these Officers as this new enforcement approach dramatically changes their role. The current practice of the suppression officers is to pass along non-compliant code infractions to the Fire Prevention Branch for follow-up. This practice creates inefficiencies due to time delays but also results in duplication of effort. In many cases, corrective actions taken at the time that the infraction is observed by the in-service crews would ensure timely result to the public safety issue and result in code compliance and citizen satisfaction. This is particularly important for Strathcona County as it has a large concentration of industrial and commercial occupancies that create unique public safety hazards and relative safety concerns that require strict code enforcement. This will be particularly challenging for the SCES as it will have to educate and train the in-service crews to perform effective industrial and commercial inspections as part of their regular duties if they are to be successful in enforcing the AFC. The fire prevention training received to date by the suppression crews is the minimum requirement as covered by NFPA for fire officers and fire fighters. The introduction of inservice crew inspections will require the emergency services bylaw to be altered, as well as the other existing bylaws that reference and link to the Strathcona fire and EMS services. Page 125

135 Any updated bylaw must specify the timelines associated with these new inspections. The Safety Codes Act does permit entry into occupancies for fire and inspection. These inspections cannot be related to property standards issues that require some authority clauses to lay the foundation for enforcement for the department. This will require the department to adopt a different philosophy on how it interacts with the public due to a new focus on enforcement. This will mean that inspection crews will have to uphold the AFC and the bylaws associated under the inspiration of public safety. This approach will require those inspecting to employ diplomacy and patience and become solution driven while using good communication techniques with the overall aim to gain compliance versus punitive enforcement. To the credit of the Fire Prevention Branch the recently added Lieutenant positions have been able to conduct a limited number of complaint driven inspections and assist with some of the prioritized backlog of inspections. The use of technology to assist the Branch will ultimately ensure its success while producing a robust database for all properties inspected that will not only provide historical property file information but also allow SCES to monitor its performance and satisfy its due diligence and legislative requirements. Electronic file management will result in better compliance, more efficient enforcement, and successful convictions within the court system. Recommendations: The department should continue to emphasize the need for additional inspectors within the Fire Prevention Branch as outlined in the 2012 Business Plan. Supplement the Fire Prevention and Public Education training provided to all suppression staff over and above the minimum provisions in NFPA 1001, 1021 and Utilize the Strathcona Census data for the development of all service provisions and long term department planning. Seek approval of the Fire Prevention Business Plan from Council. Special Risk Inspections Existing occupancy inspections are performed on a complaint and/or request basis only. Special risk inspections are covered in both the bylaw, which allows Fire Prevention personnel to issue fireworks permits, and under the permission of Safety Codes Act. It is the position of SCES that all businesses selling fireworks must fully comply with the safety codes act specifically relating to the storage documentation and sales of such items. Currently there is only one corner store selling fireworks and they are fully compliant with the safety codes act. Page 126

136 Sprinkler Ordinance No current sprinkler ordinances exist in Strathcona County. In the mid-1990s, SCES was one of the first fire departments in Western Canada to introduce a mandatory sprinkler bylaw in all newly built homes in Strathcona County. The intent was to try to establish a bylaw in a small, newly established subdivision located just south of town in a non-hydrant area, which is also in proximity to a relatively densely populated area immediately abutting adjacent urban area. As a result, most occupancies within that subdivision are sprinklered. Unfortunately it also resulted in the Province of Alberta taking a prohibitive position which resulted in the removal of references to mandatory residential sprinklers from the Safety Codes Act. This meant that municipalities could no longer regulate this requirement. While the appetite for this approach appears to be changing today, municipalities lack the legislative authority to create such regulations and thus lack the tools to demand such safety practices. This change in position has created a new risk; it is now preferred that the municipalities (instead of the Province) take the lead and consider regulating residential sprinklers. The Safety Codes Act does not provide the necessary tools to enforce such regulations on builders and any such attempts would surely be legally and politically challenged. Unfortunately, this also includes residential nursing home-type occupancies. Municipalities have the ability to create and customize their own standards, based on local circumstance that could exceed the legislative requirements of the Provincial and Federal Governments where these requirements do not add to, take away from, or conflict with these minimum legislative requirements. This allows municipalities to create risk-based community assessment standards for the community that must be reflected within an emergency services bylaw. Ironically, the fire service has the authority to demand this type of fire protection in industrial and commercial occupancies where life safety is secondary to the fire load risk, yet in the occupancies where most people die from fire private residences SCES is prohibited. Not only would residential sprinklers installed in new subdivisions assist with the growth pressures of urban hamlets, but it would also dramatically improve the life safety for inhabitants of these buildings. A residential sprinkler bylaw supports the current risk basis approach followed by SCES and compliments the focus on eliminating fire deaths and reducing injuries associated with residential fires. There is a provision within the Safety Codes Act that stipulates that fire emergency response must have a ten-minute emergency response time for a certain density of housing subdivision. As a result, an existing subdivision just outside the urban area of Sherwood Park was developed in an area that does not have hydrant water service and resulted in limiting the number of houses built to only allow for the Page 127

137 erection of every second house. This created sufficient distance between homes to reduce the fire risk and was intended to reduce the risk of high density residential fires within the subdivision. While the risk of conflagration and large loss fires has been somewhat reduced, the elongated response time of emergency responders has not eliminated the life safety issues that exist for those houses that were built. This will, however, ensure that no further development will occur within the subdivision without the installation of adequate water supply and proper emergency response. This is a positive example of the direct link between SCES and the Planning and Development Department. New Construction Plans Review Strathcona Emergency Services has a very strong link to the planning and development department and this long-standing relationship results in the fire service being consulted on all elements of the planning and development process This includes townhouse, condo, and apartment developments, including secondary suites and industrial development and excluding residential housing applications. SCES is also involved in the development at a macro level in municipal planning which sets the standards for the entire community; all structure and subdivision plans, and in all land use bylaw amendment classifications by using its own filters of standards and requirements when reviewing these applications. It is the department s goal to identify through the Plan Protection Guide the criteria that is necessary to ensure fire safety is consistently applied. It has been the past practice of SCES to include requested safety measures alongside the mandated code measures such as the Safety Codes, bylaws, case law, or the ability to make its own community standards, even though some of these requirements may only be made as requests versus mandated requirements. This has included commenting on street designs such as traffic calming initiatives. Moving forward, the newly developed bylaw should include verbiage that will allow the fire service to make its own community standards for community safety. Although the Branch is currently involved in local street design as part of the past practice, it is recommended that this be included in the revised emergency services bylaw to ensure consistency going forward. SCES should be able to develop and enforce its own public safety guidelines and standards for community safety. It is recommended that revision to the Emergency Services Bylaw occur immediately following the Emergency Management Bylaw currently being reviewed by the Council. The current informal practice of the department is to provide fire safety plan reviews; it is recommended that this is formalized from this current practice. The fire service should also consider charging a nominal fee for the review and comment on all such plans, including construction plans, Page 128

138 which may be covered through development charges as a means of cost recovery instead of a revenue generation initiative. Consideration of blue print plans of commercial properties should also be considered in this scope of work so SCES has the ability to comment on what goes into newly developed commercial occupancies. This is currently done on an ad hoc basis and is an inconsistent practice. Although the fire service may know that a commercial occupancy is being developed it does not have the knowledge of the contents of these occupancies. As a result, once the buildings are constructed to the latest version of the building code, the fire service assumes responsibility for all such inherent risks and dangers associated with the structures once they are occupied. In most cases it may be more costeffective to have the fire service comment and request changes during the building and development phase versus requesting and/or mandating expensive revisions afterwards. The current practice mainly impacts plans review of commercial occupancies. This current practice in Strathcona County does not permit the fire service the authority to review and then signoff on plans prior to occupancy. This general review and sign-off requirement should be a main component in the next revision of the Emergency Services Bylaw and the Land Use Bylaw. By utilizing the Land Use Bylaw, land developers could ensure the fire service is included in the signoff all such plans up front and may result in less red tape, less expense, and an expedited construction process by employing a one stop shopping philosophy. Recommendations: Formalize the process of providing Plans Review into the new bylaw. Consider conducting commercial property Blue Print Comment Review into new bylaw. Link Emergency Service Bylaw to Land Use Bylaw to include both a general review and sign off requirement for SCES. Formalize the past practice of local street design review into new bylaw. Key Box Entry Program Currently SCES does have a Lock Box program in a few of the buildings within Strathcona County; but the practice is inconsistently applied, and the department does not have a formalized program. As a result, the current practice is not very well documented and controlled. Past practice requested that building owners install Lock Box systems in the building for their own convenience and best interest. There are examples where key list inventories do not remain up-to-date as new locks are installed and, in some instances, they are poorly maintained. Consequently the program expectations fall short. Page 129

139 The current practice requires fire suppression staff to inform fire prevention staff when buildings employing Lock Boxes fail to meet expectations. This requires a member of fire prevention to follow-up with building owners when they can. With limited resources this is not considered a priority as the focus of the department is to prevent risk of public safety through fire prevention. The closest example of a successful program in Alberta is in the city of Calgary which has developed an in-house electronic records program and committed resources in order to sustain the program. This remains a long-term goal of SCES. Recommendation: Consider the development of a formal Lock Box Program. SCES General Fire Inspection Programs Types The following inspection programs are currently active within the SCES fire prevention division. Figure 47: Inspection Program Descriptions and Frequencies Program Description Frequency Legislation Complaint or request basis- Random Fire safety Problematic properties prioritized, i.e. As required code frequent alarms, fire crew observations, Existing Occupancy Inspections Special Risk Inspections Licensing Inspections Storage Tank Inspections Hazmat Inspection(30:22) Sale and storage of fire works As required Fire safety code, bylaw New occupancies, Underground tanks not part of Fire`s scope of work-provincial contracted to private sector. Includes large above ground and below ground tanks. Focus is on large Industry not smaller commercial-manufacturing As requested Fire service can flag concerns At the time of the Develop permit process Fire safety code. Fire safety code Dangerous Goods bylaw Future Requirement Long range strategic plan to bring back Part 4 of fire code to fire service Page 130

140 Program Description Frequency Legislation Rental Inspections Apartments, student housings not an Not Fire Code issue in Strathcona performed Building Secondary suites-fire Service does not unless Code have list of these properties. Legal in specifically Alberta. No requirement for business requested licenses Single Family Courtesy Inspections Spring 2010 inspection program cancelled, performed by Pub Ed staff only, few life safety issues not considered a high value program, houses are new and complaint. Ad hocrequest basis Future Requirement Fire fighter inservice program Future plans do include the introduction of an in-service residential inspection program to be delivered by firefighters on duty on a request basis. Any such program would easily produce a good business case demonstrating a cost effective return on investment. Consideration should be given to include the volunteer firefighter and in-service inspection program in their respective response districts as this is currently permitted in the present bylaw. Previous programs by SCES included car seat installation programs and home inspection programs, which have been discontinued because they were considered to be low value, low risk, and produced low results. Instead, school programs were introduced (i.e., 911 for kindergarten children). These results should be carefully monitored and revisited as the homes within Strathcona age and their life safety devices (e.g., smoke alarms) become dated. It is common that many urban communities experience a high rate of non-functioning smoke alarms and poor battery maintenance after the original installation. Due to the integrated service delivery model provided by SCES, it may be feasible to have EMS crews conduct cursory smoke alarms inspections while performing these EMS services (if circumstances permit). Problem occupancies can be flagged and followed up by Fire Prevention. In a recent department survey it was discovered that SCES has the second lowest number of Fire Prevention personnel compared to the seven local municipalities and completes the least number of inspections per year while having the third largest population. This is because the Branch is understaffed and personnel are consistently being redirected to other emergent, high priority issues like fire investigations and life safety concerns. Another explanation for the lower number of completed inspections can be attributed to a lack of standard process when dealing with such issues. A vast amount Page 131

141 of time is spent starting from scratch on many processes that have been completed before and not documented properly. In April 2011, a job process efficiency review was conducted internally and of the four staff in the Branch it was perceived that they were completing approximately 46 per cent of their job functions. This is a significant concern because many of the processes within the department deal with public safety, potential business loss and, ultimately, any large scale disaster with significant costs. Recommendations: Update the Emergency Services Bylaw to include enforcement provisions. Ensure that all Fire Officers are empowered to function as Fire Guardians in the new bylaw for purposes of assisting FP Inspectors enforcement of the AFC and SCA provisions. Develop clear annual performance measurements on service provisions stipulated in the new bylaw. Types of Community Risk and Occupancies Community risk level is typically established through an overall profile of the community based on the unique mixture of demographics, socioeconomic factors, occupancy risk, fire management zones, and the level of services currently provided. The property category is of particular interest to the fire service. Each property or structure in a community can be considered a hazard that carries inherent risks based on occupancy type as it relates to fire load. Occupancy risk is sublevel of property risk and is established through an assessment relative risk to life and property resulting from a fire inherent in a specific building, structure or generic occupancy classes (e.g. high-rise residential). The NFPA Fire Protection Handbook defines hazard levels of occupancies as three (3) basic types. Each hazard level carries inherent risks: Figure 48: Occupancy Hazard Classifications High-Hazard Occupancies Medium-Hazard Occupancies Low-Hazard Occupancies Schools, hospitals, nursing homes, explosive plants, refineries, high-rise buildings and other highlight hazard or large fire potential occupancies Apartments, offices, mercantile and industrial occupancies not normally requiring extensive rescue by firefighting forces. One, two, or three-family dwellings and scattered small business and industrial occupancies Page 132

142 Fire services assess the number and location of each type of occupancy and its associated hazard level and then plan resource deployment to ensure that sufficient fire department resources are dispatched to adverse events that occur in the occupancy. Inspection Frequency for High Risk Occupancies SCES wants to identify all high risk occupancies. It is the department's goal to perform more of these types of inspections in the future but is limited by the amount of resources that are available at this time. SCES is currently developing a business plan requesting additional resources that will permit measurable results to occur. The business plan calls for inspections of all high risk occupancies on an annual basis. The business plan calls for two new inspectors to be added to current staffing complement in 2012 and is anticipating that this would result in over 1,050 inspections: 50 for the Lieutenants and 500 each for the Inspectors. These results are anticipated in the year 2013, allowing 2012 for program development. This is in addition to the company in-service inspection program which is anticipated in The in-service program may be affected by the on-the-job training requirements of this integrated fire and EMS service. Firefighters will have to split the inspection time with the training time required to remain current in both the fire and EMS professional competencies. In order for the inspection program to be successful, it must be a department goal that the inspections are not just slotted into the time schedule but instead are considered a priority. A failure to prioritize will result in competing time issues. Strathcona is one of the few departments experiencing an increase in annual fire call volume. It is anticipated that through the proactive fire prevention activities, fire call volume can be stabilized and/or reduced, which will result in less time pressures put on fire crews and ensure that these valuable resources are more readily available for emergency response training and prevention and education initiatives. This has been one of the positive results experienced by many other municipalities where fire prevention and public education is a key mandate and focus. Recommendation: The department should make it a priority that all high-risk properties are inspected on a regularly scheduled basis. Page 133

143 Medium Risk Occupancies In Strathcona County it is the current practice that any type of risk occupancy will be flagged and investigated if it becomes a frequently attended address by firefighters (which is considered an internal complaint). Medium occupancies currently are not scheduled for inspections; consequently, inspections are not performed on a regular basis. The fire prevention business plan sets an annual inspection schedule for these types of occupancies if appropriate resources are made available. While these types of occupancies may pose a reduced risk due to the transient nature of the business and the frequency of changes in these occupancies, a greater risk is inherently present for responders and neighbouring occupancies. Many times changes in occupancies result in a new business occupying a building that was designed for a different business and hazard type. Quite often, lease hold changes result in different floor plan arrangements and fire load complications, which could change the risk of the property. Added emphasis on this type of occupancy should be a focus of SCES. Low Risk Occupancies Low risk occupancies represent the average residential occupancy. From a fire risk perspective, they have the potential for the least amount of fire damage where the fires tend to be confined to the original occupancies, but they do result in the most fire deaths of all of the risk occupancies. More than 70 percent of the fire fatalities in North America occur in individual residential occupancies. While the risk occupancies listed above have greater potential for loss of life and fire spread, they are also the most regulated through fire code enforcement; as a result, they are probably better protected and served through the fire code then are the residential properties. Residential properties are the least regulated, least inspected, and thus pose the greatest risk of loss of life for the inhabitants; they must be a focal point of any SCES inspection program. Recommendations: Develop a Risk-Based Community Assessment Standard and incorporate into the new bylaw as a means of ensuring community safety. Establish a process for identifying and measuring the Community Risk Level for the purpose of development of both short-term and long-term service delivery requirements. Increase the inspection capabilities and frequency of all High, Medium and Low Risk Occupancies by using the Strathcona County Census data as a guide. Page 134

144 Occupancy Computerized Records Strathcona County Emergency Services There is no comprehensive computerized program utilized by the Branch at this time. The department is reviewing various vendors with the goal to ultimately implement a computer program utilized by the Fire Prevention Branch. This project is outlined in the current Fire Prevention Business Plan. The Strathcona Fire Service should be recognized for its development of an independent fire prevention business plan as part of the overarching strategy for the entire department. The strategy plays out to the year 2018, focusing on staged capital and staffing requirements for the future. Recommendation: Implement a record management system to comply with the Safety Code Act. Consideration should be given to simply adding the FP module of the FDM program that the department already owns. Fire Prevention Branch Staffing Devoted to Program A total of 5.6 FTE positions are currently assigned to the Fire Prevention Branch. There are also casual Public Safety Educators who are covered under a separate budget line item for casual workers. Figure 49: Fire Prevention and Life Safety Education Staffing FTEs Position 1.0 Fire Marshal 1.0 Captain 2.0 Lieutenant 1.0 Admin Support 0.6 Public Education-Marketing Coordinator 5.6 Total FTEs It has been recognized by SCES that the fire prevention inspection program is under resourced, and the department is committed to adding additional resources. Although not official, the Fire Underwriters Survey recommends that one Fire Prevention Officer is required for every 15,000 residents. The National Fire Protection Association (NFPA) is further recommends at least one full-time Public Safety Educator for every 50,000 residents. From both an industry standard and best practice perspective it is apparent that the SCES Fire Prevention Branch is under staffed. Page 135

145 Recommendations: Consider one new FTE position dedicated to Public Education and Marketing. Consider adding more Inspection Officers; incrementally and strictly monitor their effectiveness to ensure all new resources are added only as required. Company Inspections There is no formalized, proactive schedule for company inspections. any inspections performed by onduty companies are not considered to be documented inspections and thus are considered informal. Firefighters conduct approximately 20 of these types of inspections annually. This area appears to hold the greatest opportunity for success and the easiest component to implant that will yield the quickest results with minimal effort. It will, however, have challenges as the emergency responders in Strathcona provide an integrated service which already places large demands on certification and training. Even though a challenge, it is a strongly encouraged that SCES develop a program suited for its operations and implement this as soon as possible. Recommendation: Introduce an in-service residential inspection program utilizing the resources of all full-time personnel and consider involving part-time suppression personnel. Public Education The department s public education position equates to 0.6 FTE and is filled by the Public Education and Marking Coordinator. The public education component will soon be reduced and the marketing function will become full time. This casual position is also supported by nine part-time public education support staff. These resources are paid out of the hourly wage pool. Staff is often reassigned within the bureau to assist with other work as required. One is dedicated to the fire safe facility program. Public Education Topics include: Calling 911 New Moms program Stay at home alone program The Sparky program Attend special Events, trade shows, parades First Aid CPR Courses Page 136

146 Babysitting Safety Seniors fall program Wild Land Interface Education Education about wild land interface has been sporadically provided to the public primarily as a result of the large fires experienced in The following is an example of education proved to the public: Targeted specific areas prone and impacted by these types of fires Drop offs to individual residents Facilitated open houses around the county Instituted local Fires Bans (which hadn t been initiated since 2004) Developed detailed SOGs for Fire Bans Fee Structure The department has a comprehensive cost recovery fee schedule and is referenced in the Emergency Services bylaw. This schedule is ultimately approved by Council on an annual basis as part of the budget process. The 2012 fee schedule adjustments include a 5 percent increase to cover the cost of inflation and are not designed to be revenue generator. Recommendation: Consider a cost recovery fee structure for all plans review using development charges. Fire Investigations Both the Fire Marshal and the Captain are the only two qualified staff capable of performing as SCES Investigators. They provide on-scene origin and causes determination and investigative services up to the point of prosecution. SCES has created a Fire Investigation SOG based on Strathcona requirements. It is an in-house solution that aligns with NFPA standards. The Investigation practices are best described as following the intent of NFPA 921, as elements of NFPA 921 are built into the SCES Investigation SOG, but full compliance is not achievable at this time. Due consideration should be given on the merits and feasibility of cross training on-duty Senior Officers to provide afterhours investigation services. This will require a new training component but will provide Page 137

147 unprecedented depth of resources and almost immediate response on a 24-hour basis. In addition to benefitting origin and cause determination these same resources may be able to augment the arson investigation requirements describe below. Arson Investigation and Awareness Training Arson investigation and awareness training is only provided on an ad hoc basis. There is no formalized officer training provided at this time, other than the education provided in the NFPA 1021 and 1041 Officer Development requirements. The SOG stipulates who is called, and when, and it has built in contingencies that utilize outside resources as required: Fire Marshal and Captain Contract Investigator- on retainer Peer Investigator from Fort Saskatchewan Fire or Edmonton Fire Default for all in Alberta Provincial Investigator Recommendation: Consider cross training Platoon Chiefs in Fire Investigations and Arson Investigation to assist with providing after hours coverage in lieu of the Fire Marshal and FPB Captain. Juvenile Fire Suspects SCES does not provide juvenile fire setter-related service as there are concerns about liability. At present, SCES meets on a regular basis with police services to discuss and review investigation of files. This is a relatively new practice and occurs primarily at the senior officer s level. Ultimately, the goal would see some form of link with Strathcona Fire Investigators and the Police Investigators so the process can be formalized. Today the Scene Control Practices are covered in the SOG. Admittedly, it is imperfectly practiced and difficult for SCES to achieve and follow this SOG due to current staffing issues. The evidence investigation process component of Juvenile Fire Setters is covered through the Investigation SOG. The Police are responsible for the collection and storage of all arson related evidence. All arson related evidence storage is currently arranged through the Utilities Department for use of their storage facilities. This is a temporary arrangement as an Evidence Storage Area will be built in station 6. Page 138

148 Recommendation: Consider developing a link partnership between Fire Investigators and the Local Police Service regarding Juvenile Fire Setters. Statistical Analysis and Data Collection It is strongly encouraged that the May 2009 municipal census be used by SCES as a foundation for its short-term and long-term planning regarding the introduction of new services and enhancing the existing service levels. The census information is, in fact, used by the County to plan community projects such as schools, libraries, police stations, health and childcare, and transportation. It reflects the growth of the entire community as a whole and is also important to businesses that operate throughout the County. The information contained in the census reports can assist businesses in deciding where to locate factories, shopping centers, movie theaters, banks, and offices activities that often lead to increased risk and add to the due diligence requirements for SCES. Below are a few highlights taken from the census that have a direct correlation to SCES: The total number of dwellings in Strathcona County for the year 2008 was 32,579. Since 2008, there has been an increase of 2 percent or 630 dwellings. Most of the new dwellings in the County are in Sherwood Park. The number of occupied dwellings in the urban and rural regions of Strathcona County were 31,225, of these 22,280 (or 71.4 percent) are located in the Sherwood Park area. The majority of dwellings that exist throughout the County are occupied. The County as a whole, 95.8 percent of the dwellings were occupied, 3.4 percent were vacant, and 0.7 percent was under construction. There are very few duplexes or row house developments and apartments in any parts of rural Strathcona County. The majority of these types of dwellings are located in Sherwood Park. The majority of housing stock in all parts of Strathcona County is single detached dwellings. In North America the majority of fire deaths due to fire occur in our homes. By simply focussing efforts on the area with the most potential for loss of life, success can be achieved through an aggressive and focused in-service home inspection program. When coupled with smoke alarm installation, a program such as this will go a long way in protecting the citizens of Strathcona who cannot help themselves. Second to the highly industrialized areas of Strathcona County, the greatest risk of loss of life can be found in Strathcona s private households. We know from the census data that these households dominate the community. A private household is defined as either a single person, a family with two or Page 139

149 more persons, or a shared accommodation arrangement (e.g., two or more non-related people sharing a dwelling). The next largest life safety risk in Strathcona County can be found in collective dwellings. A collective dwelling refers to a setting that fulfills a particular purpose or function within the community, most often in some form of assisted living. For example, collective dwellings can be nursing homes, senior citizen homes, hospitals, prisons, or homes for physically or mentally challenged individuals. Hutterite colonies in Rural Strathcona are also classified as collective dwellings. 163 occupied residences classified as collective dwellings in Strathcona County. 10 of the collective dwellings had more than 9 people residing in them; the number of people residing within a collective dwelling range ranged from 10 people to 157 people. Most collective dwellings had 20 or more residents. Many of the smaller collective dwellings consisted of individual apartments where seniors lived independently. The average household size (excluding those living in collective dwellings) in Sherwood Park is 2.75 people thus the median household size is 2 people. The average household size in Rural Strathcona is 2.93 people and the household size is 3 people. Country residential households have an average size of 3.05 people, with a median of 3; Farms have an average size of 2.60 people, with a median of 2; Hamlets have an average size of 2.62 people, with a median of 2. The Census data also reviewed Strathcona County s average age. A percentage comparison of age groups between rural and urban Strathcona reveals a similar distribution across the County in most age groups. In 2008, the median age of Sherwood Park residents was 37 years old, and the median age of people living in rural Strathcona was 41 years. In terms of averages and medians derived in 2009, the people in rural Strathcona are slightly older than those living in Sherwood Park. This has been a trend for several years. In terms of Kindergarten to Grade 12 (K-12) school enrolments, the majority of Sherwood Park children attend schools located in Sherwood Park with a small percentage of them going to school in Edmonton. However, children living in rural Strathcona either go to K-12 schools in rural Strathcona or in Sherwood Page 140

150 Park. When it comes to post-secondary school destinations, the students as a whole primarily go into Edmonton. This translates into a great opportunity for educating the next generation of Strathcona adults. Education programs targeting grade and elementary school levels can also be very affective in terms of fire safety and health care. It is recommended that SCES provide sufficient resources that are educated and skilled in the area of targeted public education to the students of Strathcona County schools. SCES has focused on a school program for some time. An affective program requires dedicated resources specialized in public education. The SCES approach is a sound one since focussing on the young tends to make for a better informed public. We also know that it is the young and the very old that are most vulnerable to fire because they can t help themselves as readily. Programs geared towards the young and the old are good investments for today and the future. Communications The methods by which emergency services units are dispatched are critical components in the overall delivery of service to the community. Without a formal process by which emergency incidents can be reported, appropriate resources will be delayed in their response. Likewise, without a system that intuitively assists dispatchers and telecommunicators through automatic number and location identification (ANI/ALI), resources could be delayed based on a lack of appropriate location information. Modern dispatch centers utilize a number of systems to assist dispatchers and telecommunicators in the notification of emergency resources. Progressive communities have implemented region-wide call systems to centralize the reporting of emergency incidents, have appointed individuals with specific knowledge of emergency communications systems to oversee and direct these operations, have appropriately staffed these operations with sufficient personnel to handle the communities call volume, have implemented specific protocols for the answering of emergency calls and dispatching of emergency resources, and have provided adequate training to all personnel involved in the system. Page 141

151 Figure 50: Summary of Communications Elements Dispatch Center Name Strathcona County Regional Emergency Communications Center Dispatch Agency Type In-house agency dispatch center Incoming Emergency Calls Primary PSAP Dispatch Center Governance Subdivision of this agency Center Management Under authority of this agency management-level officer Center Staffing Maximum total staff at peak demand 5 Minimum total staff at off-peak demand 3 Is a Supervisor On Duty At All Times Senior telecommunicator acts as supervisor Dedicated Consoles for Fire and/or EMS Yes Call Answering Methodology Telecommunicators take turns as call-taker, hand off dispatch functions Responsibility for Training Supervisor(s) Dispatcher Initial Training Agency conducts initial training in-house In-house Initial Training in Hours Classroom technical training 40 Emergency medical dispatch training/certification 40 Practical experience with console training officer 600 Fire service/ems ride-along 40 Telecommunicator basic certification course 32 First responder certification course 24 CPR certification course 12 Annual Recurrent Training in Hours Emergency medical dispatch training/certification 16 First responder certification course 16 CPR certification course 8 Workshops and seminars 32 Ancillary Functions Performed by After hours incoming calls for key agencies Telecommunicators Number of Incoming Lines 12 Wireless Phase II compliant? Yes Incoming Call Volume per Year incoming Formal Performance Standards Yes Performance Standards in Seconds Call pick up 15 Call processing- emergency calls 90 Formal Quality Assurance Program Yes, with random review Computer-Aided Dispatch Available Yes Computer-Aided Dispatch Hardware Platform Windows-based CAD Software FDM Software Type of CAD System Geo-Based Who Maintains CAD Resource Information Agency staff Who Maintains Geographic Data Municipal GIS department Information Available Through CAD Hydrant locations only Location call history Location hazards Location full pre-incident plan Fire/EMS Back-Up Response Recommendation 10 Layers Programmed Page 142

152 Dispatch Method Specific apparatus response assignment Methods of Station Notification Encoded station radio alert Direct line station announce Station printer Methods of Field Personnel Notification Two-way radio SMS text paging or alphanumeric paging- CAD auto generate Is Emergency Medical Dispatch Used Yes- call type identification and pre-arrival instructions Telecommunicators certified Emergency Communication System Analogue trunked system Number of Talk Groups for this Agency 11 System Queuing Experience Rare Center Redundancy Preparation Back-up power Back-up transmitters Back-up consoles Ability to dispatch from Station 4, one console, 25 minute distance Center Security Off ground floor Electronic passage lock system Positive visual identify prior to entry Fire suppression system Since ESCI s on-site visits with SCES, some elements of communications and dispatch have been transferred to the Province. The staffing plan that was in preparation has now been finalized to include three personnel 24 hours per day plus an SCES Captain serving as the supervisor during normal business hours. The branch now employs a total of 13 full-time personnel and the minimum staffing set at two personnel, which can be supplemented with part-time staff. Although a significant reduction in call volume has been experienced since the move to the Provincial communications center (decreased by one third), the staffing is still minimal when compared to the level of demand still experienced by the dispatch center. This is evidenced in the following figure, which identifies comparable dispatch centers across North America. Figure 51: Comparison of Dispatch Centers - Staffing to Service Demand Jurisdiction Total 911 Authorized Staffing SCES 86, North Suburban Emergency Communications Des Plaines, IL 74, Central Lane Communications Eugene, OR 134, Although the data is limited, it appears as though SCES communications is handling a very high workload with minimal staffing. Page 143

153 Materials Management Materials management is a function within SCES, which handles all aspects of logistics and support of the overall operation of the department. This function is tasked with overseeing the supply chain of materials, equipment, and supplies necessary for the emergency mission of the department to continue on a round-the-clock basis. Materials management s duties and responsibilities include inventorying existing equipment and supplies, tracking the location of durable equipment, ordering and delivering replacement supplies and equipment, maintenance of durable equipment and warehousing. This function is current staffed with civilian personnel and is located within the administrative division, reporting to the Assistant Chief of Business Operations. Since the positions are civilian, they are not within the operational chain of command of the organization and no direct supervision from a line officer is provided. In many emergency services organizations across North America, materials management, or logistics, is a function of a logistics and support division rather than administration. Since the primary role of logistics is to function as a quartermaster, the duties and responsibilities of this element are critical to the overall success of the organization. SCES would be well served by placing a higher priority on materials management and should consider placing a sworn fire officer in a position to oversee the function. Recommendation: SCES should place a higher priority on materials management and should consider placing a sworn fire officer in a position to oversee the function. Page 144

154 Emergency Medical Services Support and Oversight Emergency medical services (EMS) within Strathcona County is provided by SCES throughout contract with the Alberta Health Services (AHS). This contract requires SCES to have four fully staffed ALS ambulances available at all times. In exchange for this unit availability, AHS pays Strathcona County approximately $4,981,980 based on the 2011 contract amount. AHS is divided into five primary zones of oversight as illustrated in the following figure. Figure 52: AHS Zone Map Obtained from Page 145

155 Although SCES is located within the Central Zone, the four ambulances staffed with SCES personnel may be called upon to respond anywhere within the province in accordance with the contract with AHS. This could potentially degrade the level of service being provided to the citizens of Strathcona County by removing resources to serve other areas within the region. The contract with AHS does not provide direction on staffing other than to dictate that each unit must have at least one EMT-Paramedic and one EMT. However, SCES staffs each transport ambulance with three EMT-Paramedic personnel in order to reduce the necessity of the dispatch of additional apparatus to many of the medical/rescue incidents within Strathcona County. Materials Management Logistical support is the function of ensuring that all equipment and resources within EMS are properly prepared and mechanically able to respond when dispatched. This function is handled solely through SCES. Transport ambulances, particularly those at the advanced life support level, require an enormous amount of equipment and supplies in order to carry out their mission. The Alberta Emergency Health Services Act and subsequent regulations dictate the specific equipment that must be carried on each transport ambulance functioning within the province. This list of required equipment is lengthy and will not be repeated here; it is sufficient to note that SCES is required to stock, replace, and maintain thousands of dollars worth of emergency medical equipment on each transport ambulance operating within SCES. Logistical support for the department s EMS function falls under the purview of the Deputy Fire Chief, Human Resources and Logistics. This function is responsible for ensuring that all response personnel and vehicles are fully equipped and ready for immediate response at all times. Medical Control and Oversight Medical direction is a critical component of any EMS system. Prior to AHS assuming responsibility and oversight of EMS throughout the province, SCES was required to maintain an individual medical director to provide clinical oversight to both basic life support and advanced life support personnel within the system. SCES employed a full-time medical director as well as a deputy medical director. These individuals were board certified physicians and had frequent interaction with SCES staff, including periodic involvement in required training sessions and field clinical care. In fact, one of these individuals was riding along with field crews on a monthly basis to ensure clinical compliance with established protocols. This has since changed due to the transition to the provincial EMS system. Page 146

156 Today, AHS provides medical direction, control, and oversight to SCES EMS operations as part of the contract between Strathcona County and AHS. This medical director, assigned to the Central Zone for AHS, has the responsibility for overseeing a number of EMS agencies within the region. Although AHS protocols are now in place that bring a new level of consistency in care throughout Alberta, this has served to reduce the direct interaction of the medical director with field staff and the review of patient care reports no longer involves the physician responsible for medical direction within Strathcona County. Quality Assurance/Quality Management Programs Quality assurance and management is the process of reviewing clinical records to ensure compliance with established protocols, identifying deficiencies in clinical care and addressing those issues through enhanced and/or remedial training sessions either system wide or on an individual basis. Prior to AHS assuming responsibility for EMS, the Medical Director and Deputy Medical Director employed by SCES were heavily involved in the QA/QM process by direct interaction with field personnel as well as monthly reviews of clinical patient care reports. Each patient care report (PCR) was reviewed by at least three individuals upon completion of the incident: Field Supervisor, EMS Chief and Medical Director/Deputy Medical Director. Since the assumption of EMS oversight by AHS and the subsequent replacement of the local medical directors with provincially appointed personnel, the QA/QM function within SCES has suffered. The Medical Director assigned to the Central Zone has entirely too many agencies to oversee to be involved in specific QA/QM functions. Despite these changes in the way that QA/QM is performed within the department, SCES remains an ISO 9001 organization for quality. Page 147

157 Emergency Management Programs Emergency Management (EM) is the discipline of preparing for, responding to, recovering from, and mitigating natural and man-made disasters. The organization and management of resources is the responsibility of the EM staff and includes dealing with all aspects of emergencies. The intent of EM programs is four-fold as mentioned above: Preparedness, Response, Recovery, and Mitigation. These components of the program are cyclical in nature. The intent of this section of the report is to provide an overview of the SCES Emergency Management functions as they relate to compliance, planning, documentation, coordination, communications, and facilities and equipment. Currently, the Fire Chief serves as the Deputy Director of EM and reports to the Chief Commissioner who is, according to bylaw, the EM Director. This practice should be evaluated for effectiveness and operational ability and consideration should be given to removing the Chief Commissioner from the EM role and placing those duties and responsibilities with the Fire Chief and EM Branch within SCES. Emergency Operations Planning An Emergency Operations Plan (EOP) or Municipal Emergency Plan (MEP) is a document that details each community s plan to protect itself from potential hazards with the resources on hand or that can be obtained. Each jurisdiction is required to develop an EOP/MEP that defines the scope of preparedness and incident management activities necessary for the jurisdiction. The standard EOP/MEP will identify: Organizational structures Roles and responsibilities Policies Protocols for providing emergency support An EOP/MEP should facilitate response and short-term recovery activities and should serve as the primary reference document in regard to long-term prevention and mitigation efforts. An effective and comprehensive EOP/MEP should answer the following questions Does your EOP/MEP define the scope of preparedness and incident management activities necessary for your local or tribal jurisdiction? 20 Excerpted from, Local and Tribal NIMS Integration: Integrating the National Incident Management System into Local and Tribal Emergency Operations Plans and Standard Operating Procedures. Version 1.0. U.S. Department of Homeland Security. Page 148

158 2. Does your EOP/MEP describe organizational structures, roles and responsibilities, policies, and protocols for providing emergency support? 3. Does your EOP/MEP facilitate response and short-term recovery activities? 4. Is your EOP/MEP flexible enough to use in all emergencies? 5. Does your EOP/MEP have a description of its purpose? 6. Does your EOP/MEP describe the situation and assumptions? 7. Does your EOP/MEP describe the concept of operations? 8. Does your EOP/MEP describe the organization and assignment of responsibilities? 9. Does your EOP/MEP describe administration and logistics? 10. Does your EOP/MEP contain a section that covers the development and maintenance of your EOP/MEP? 11. Does your EOP/MEP contain authorities and references? 12. Does your EOP/MEP contain functional annexes? 13. Does your EOP/MEP contain hazard-specific appendices? 14. Does your EOP/MEP contain a glossary? 15. Does your EOP/MEP pre-designate functional area representatives to the Emergency Operations Center/Multi-agency Coordination System 16. Does your EOP/MEP include pre-incident and post-incident public awareness, education, and communications plans and protocols? Emergency Operations Plans are typically lengthy and complex documents that contain a Basic Plan along with additional components (annexes) that address specific situations and/or circumstances. The SCES EOP/MEP was completed in April 2011 and is currently under review locally. The plan was completed by SCES staff following provincial templates. Each county department was involved in the development of the plan and is accountable for the update and continued revision of their individual sections. Although there is no formal review process currently, a new county bylaw is being drafted that would establish roles and responsibilities for review and update. Activation of the local EOP/MEP is left to the local jurisdiction and governance instruments regarding immediate declarations of emergencies are contained with the provincial Emergency Management Act and locally within bylaw. Limited activations are completed three to four times annually involving four county departments for each activation in order to continually test the plan. Local industrial exercises are also conducted frequently. A full-scale exercise is conducted annually. Page 149

159 Emergency Operations Center Facilities Strathcona County Emergency Services An Emergency Operations Center (EOC) is the physical location where an organization comes together during an emergency to coordinate response and recovery actions and resources. These centers may alternatively be called command centers, situation rooms, war rooms, crisis management centers, or other similar terms. Regardless of the term, this is where the coordination of information and resources takes place. The EOC is not an incident command post; rather, it is the operations center where coordination and management decisions are facilitated. A properly designed EOC should serve as an effective and efficient facility for coordinating emergency response efforts. An EOC may serve a number of uses including operations, training, meetings and other uses. The EOC can optimize communication and coordination by effective information management and presentation. Strong management will be needed during EOC operations. EOCs should be activated as soon as possible to ensure that rapid decision making can occur. During the incident response phase, the real-time tracking of incidents and response resources is critical. Resources may be in short supply while multiple requests for services pile up. An operations log capability is needed to fulfill the requirement of documenting, tracking, and managing the response to an infinite number of concurrent incidents. SCES currently has no dedicated Emergency Operations Center; a shared space is converted when necessary. The current space utilized for the EOC, located on the first floor of the government centre, is minimally sufficient for current uses but lacks adequate security and entry control measures. Although a swipe card system is in place for the entirety of the building, no entry control is provided for the EOC. Staffing of the EOC during emergencies is identified within the EOP/MEP and each department is responsible for appropriating sufficient staff resources. Communications systems for the EOC include land-line telephones, handheld radios, and amateur radio operators that respond to the EOC to assist. External activities are currently monitored though handheld or other portable devices. Tactical Communications Plans Individual first responders and emergency personnel typically have their own radio communications systems. These systems use different radio frequency ranges and electronic protocols that are not compatible. These responders are using dissimilar radio equipment but are on similar missions. As a result, these individuals are not able to communicate when they either are out of their own area or are Page 150

160 working jointly with other personnel. A tactical communications plan will identify these discrepancies and provide the basis to develop/enhance interoperability between these individuals/agencies. A tactical communications plan is designed to address interoperability issues within the jurisdiction including law enforcement, fire, EMS, and other emergency response and public safety agencies. The plan should catalogue mutual aid, interoperability, and daily use radio resources, for quick reference in the event of a disaster. Although SCES functions as a regional communications center for the dispatch of fire and EMS resources, no tactical communications plan is currently in place. External Participation Involvement of non-governmental organizations (NGO) and private for-profit and not-for-profit agencies, as well as interested individuals, is essential to many local emergency management programs. Groups of local emergency planners can take many forms, including quasi-governmental groups consisting of non-response individuals with technical experience in the areas of risk within a given community. EM officials, as well as industry representatives, have the primary responsibility to: Identify affected facilities and transportation routes Describe emergency notification and response procedures Designate community and facility emergency coordinators Describe methods to determine the occurrence and extent of a release Identify available response equipment and personnel Outline evacuation plans Describe training and practice programs and schedules Contain methods and schedules for exercising the plan Hazard Mitigation Planning Hazard mitigation planning is a process for State, local, and Tribal governments to identify policies, activities, and tools to implement mitigation actions. Mitigation is any sustained action taken to reduce or eliminate long-term risk to life and property from a hazard event. This process has four steps: 1. Organizing resources 2. Assessing risks 3. Developing a mitigation plan 4. Implementing the plan and monitoring progress Page 151

161 Mitigation Plans form the foundation for a community's long-term strategy to reduce disaster losses and break the cycle of disaster damage, reconstruction, and repeated damage. The planning process is as important as the plan itself. It creates a framework for risk-based decision making to reduce damages to lives, property, and the economy from future disasters. In 2010, SCES conducted a qualitative risk assessment linked to the Canadian Ministry of Defense. Strathcona County was only the fourth municipality to conduct such an assessment in Canada. The assessment was conducted with the assistance of the federal government and identified the highest types of risks within the community without identifying specific locations and/or sites of specific hazards. Each department within Strathcona County was tasked with identifying and prioritizing the risks each could face during an emergency. Training on mitigating those risks is scheduled for the near future. Recommendations: The Fire Chief should be tasked with the role of EM Director and the duties and responsibilities for EM should be returned to the Fire Chief and EM Branch within SCES. SCES should work with county officials to dedicate a space for the Emergency Operations Center that can be stocked, set-up, and ready on a moment s notice in the event of a disaster or emergency. Page 152

162 Section II: Future Service Demand Projections The process of forecasting growth within the community begins with an overview of current demographic and risk categories. Current Population Information According to the 2011 federal census estimates, the estimated population of Strathcona County was 92,490 persons. This represents an overall increase of 12.1 percent since the 2006 census when a population of 82,511 was recorded. The average annual growth rate this decade has been 4.2 percent. How this population is composed by age group can have a significant effect upon the fire service. The following figure distributes the population into age groups based on available census information. Figure 53: Population by Age, ,000 7,000 6,000 5,000 4,000 3,000 2,000 1, Approximately 8.6 percent of the population is 65 years of age or older and 6.2 percent of the population is under 5 years of age, placing a total of 14.8 percent of the area s population within the significant target age groups that pose the highest risk for fatalities in residential fire incidents and typically generate higher levels of medical incident service demand. 21 Although total population from the 2011 federal census has been released, data pertaining to age distribution and housing characteristics is only available from the previous census. Page 153

163 Numerous rentals and vacancies can signal economic conditions that correlate with higher rates of emergency incidents. The following figure illustrates the distribution of housing units by tenure throughout Strathcona County. 30,000 Figure 54: Select Housing Characteristics 25,000 20,000 15,000 10,000 5,000 0 Owner Occupied Renter Occupied Vacant The high level of owner-occupied housing indicates a stable economic environment that would tend to decrease overall demand for emergency services. Available census information does not indicate the number of vacant properties but, based on the high rate of owner occupation, one could assume that the vacancy rate for Strathcona County would be extremely low. Population Growth Projections The population within Strathcona County has grown steadily throughout the last decade. Local planning officials anticipate that additional growth may continue throughout the region at a similar rate as previously experienced. In developing forecasts for population growth, ESCI typically develops a forecast based on several years of census experience. For Strathcona County, ESCI used figures from 1990 through 2006 as reported by Statistics Canada to create a mathematical forecast of total population. In addition, information was taken from Strathcona County s future land use plan, which indicates that a 2 percent population growth rate is used as the base for future land use planning. These two population forecasts are illustrated in the following figure. Page 154

164 Figure 55: Population Forecast 160, , , ,000 80,000 60,000 40,000 20, Census Based 2% Based It is not the intent of this study to be a definitive authority for the projection of future population in the service area, but rather to base recommendations for future fire protection and emergency services needs on a reasonable association with projected service demand. Since it is known that the service demand for emergency agencies is based almost entirely on human activity, it is important to have a population-based projection of the future size of the community. Planning should begin now to maintain the resources needed to meet the continuing demand for services throughout Strathcona County. Community Risk Analysis The fire service assesses the relative risk of properties based on a number of factors. Properties with high fire and life risk often require greater numbers of personnel and apparatus to effectively mitigate a fire emergency. Staffing and deployment decisions should be made with consideration of the level of risk within geographic sub-areas of a community. The community s risk assessment has been developed based on potential land use within its boundaries. These potential uses are found in the county s zoning designations and land use plans. The following maps illustrate how land use (potential scale and type of development within geographic sub-areas) is distributed throughout Strathcona County. Page 155

165 Figure 56: Community Land Use Assessment The areas outside Sherwood Park contain mostly low to moderate risk properties with a scattering of high risk commercial and/or industrial areas, particularly in the northern portions of the county. Unlike medical responses that focus on human life, fire incidents are intended to protect property in addition to life. Typically, the most frequent occurrences of fires are in the more populated areas where Page 156

166 structures are also denser. The following map illustrates how the varying levels of population density are distributed throughout Strathcona County. Figure 57: Population Density Page 157

167 A vast majority of the area outside Sherwood Park has a much lower population density than the urban area. In regards to community risk, the areas of higher population density will typically generate a higher service demand than the rural areas. This has also been illustrated in the service demand analysis section of this report. Future planning of fire stations has already begun and is focused on the urban areas while those areas outside Sherwood Park have received an appropriate level of attention in regard to the deployment of physical resources based on perceived risk. Service Demand Projections In evaluating the deployment regarding facilities, resources, and staffing, it is imperative that consideration be given to potential changes in workload that could directly affect such deployment. Any changes in service demand can require changes and adjustments in the deployment of staff and resources in order to maintain acceptable levels of performance. For purposes of this study, ESCI utilized population projections obtained through Statistics Canada and multiplied these by a forecasted incident rate derived from historic incident per capita rates to identify workload potential through the year The results of the analysis are shown in the following figure. Figure 58: Total Workload Forecast 14,000 12,000 10,000 8,000 6,000 4,000 2, The increase in actual fire incidents is forecast to be relatively low during the study period, a reflection of trends for fire incident rates per capita and believed to be a result of improvements made in building codes and public fire education during the last several decades. EMS is expected to continue to be a Page 158

168 predominate factor in service demand, while other emergency service calls not involving actual fires are forecast to increase, in part due to the use of automatic alarm and water flow systems. Although not reflected here since these projections are based on historical data, the opening of Strathcona Community Hospital (SCH) is expected to cause a significant increase in overall EMS service demand for SCES. This is due to a variety of factors. As the closest hospital for much of Strathcona County, a large percentage of EMS patients from within the county will be transported to the new facility. Those that are ill or injured to a level that exceeds the capabilities of SCH will require transport into Edmonton. This same scenario is true for patients that are transported by other regional providers. Information received from the Province suggests that the SCES transport volume could triple during the first year SCH is open. This will have a substantial impact on the overall service delivery capabilities of SCES. Page 159

169

170 Section III: Future Delivery System Models This section identifies strategies and recommendations for future resource deployment changes that would maintain or improve the department s response capabilities and performance as growth and development continue at the projected levels. Development of Response Standards and Targets The process of setting response time performance objectives will include two primary considerations: 3. What are the expectations of the community in regard to initial response time of the fire department to an emergency incident? What is the public s perception of quality emergency service where response time is concerned? 4. What response time performance would be reasonable and effective in containing fire, reducing damage, and saving lives when considering the types of incidents and fire risks faced by Strathcona County? To initiate the process of considering the expectations of the customer, the historical travel time is examined from the incident records. Turnout time, the time for personnel to begin responding after alarm, has an effect upon overall response time but does not bear (nor should it) an effect upon station location analysis since it has no geographic impact. The figure below compares the NFPA 1720 standard to the current performance of each station. Figure 59: Response Performance Objective Recommendations Actual 2010 Performance NFPA 1710/1720 Objective Station Location Predominant Density Station 1 Sherwood Park Urban 12:00 5:00 90 th Station 2 South Strathcona Rural 15:35 14:00 80 th Station 3 Ardrossan Suburban/Rural 15:15 14:00 80 th Station 4 North Strathcona Rural 18:31 5:00 90 th Station 5 Sherwood Park Urban 16:47 5:00 90 th Percentile The figure above details each station s performance with regard to first unit arrivals while NFPA recommendations are intended to portray an initial alarm assignment, such as two engines and a third apparatus, regardless of type. Although none of the stations within Strathcona County are currently meeting the NFPA 1720 response performance recommendation with first arriving unit response times, ESCI recommends that policymakers adopt formal initial alarm force response performance objectives Page 161

171 based on this standard and begin a process of periodic review and evaluation of performance improvement. As a secondary process of considering the expectations of the customer, ESCI collected information obtained through several community surveys related to the delivery of emergency services within Strathcona County. The expectations for future delivery of fire services and the willingness or ability of the community to pay for the desired level of service was the focus of the information gleaned from those surveys. Recommendation: Adopt formal initial alarm force response performance objectives based on NFPA 1720 and begin a process of periodic review and evaluation of performance improvement. Page 162

172 Recommended Long-Term Strategies Strathcona County Emergency Services Although the foregoing sections of this report focused primarily on the conditions that currently exist within the emergency services system of Strathcona County, the intent of this study is to combine that evaluation with a look into the future and provide policy makers with information necessary to carry the system forward over the next 10 to 20 years. This portion of the report provides recommendations related to the deployment of facilities, apparatus and personnel with a focus on future service delivery and an improvement in overall efficiency within the system. Facilities The current distribution of the fire stations was discussed previously in this report. This section intends to provide strategies that policy makers can use to look into the future in an effort to reduce costs and deliver emergency services the community more efficiently. Over the past several years, SCES has worked with municipal officials to plan for the future of emergency services within Strathcona County. To this end, Station 6 is currently under construction and has been shown that it will have a positive impact on the concentration capability of the organization. Although Station 7 is currently in the capital improvement plan, no funds have been budgeted. If funded and constructed, the station would be placed in a location in close proximity to the Strathcona Community Hospital that is currently under construction on the north side of Sherwood Park. The concentration and distribution analysis presented previously indicates that the addition of Station 7 at the proposed location will have a positive impact on the services provided by SCES. Based on the service demand density maps presented previously, a majority of service demand, both fire and medical, occurs within the core of Sherwood Park with some scattering of incidents across the remainder of the county. If SCES were to place dedicated staff at each of the current facilities, it would stand to reason that those units would be dispatched based on proximity to the incident. The following figure provides for a closest unit response model, which would slightly adjust the current response boundaries of the existing stations. This figure also assumes the staffing of Station 6. Page 163

173 Figure 60: Closest Unit Response From Existing Stations This model will need to be re-evaluated once Station 7 is brought online and further adjustments will be necessary to initial assignment areas. ESCI developed a model optimized travel time map to illustrate Page 164

174 how the placement of Station 7 will impact the ability of the other stations to respond to incidents within their respective jurisdictions. Figure 61: Closest Unit Response From Existing Stations plus Station 7 Page 165

175 As a model, the following figure illustrates the potential travel time capability of the future Station 7. Figure 62: Travel Time Capability - Station 7 Travel capability for Station 7 will be best in and around the area being developed to include Strathcona Community Hospital. This will allow a quicker response to the newly developed area as well as to the Page 166

176 medical complex and will provide additional effective response force assistance to Stations 3, 5 and 6 within eight minutes of travel. Based on the travel time analysis presented throughout this report, it is obvious that the rural areas of Strathcona County will experience longer response times from the current stations. Those residents living in the rural areas are currently served by volunteer or paid-on-call personnel, which must respond to one of the volunteer stations (Stations 2 and 3) from work or home in order to respond an apparatus to the scene of an emergency. These resources are supplemented by career personnel that respond from stations within Sherwood Park. Therefore, as a component of future planning for emergency services within Strathcona County, ESCI is providing information here regarding any advantages or disadvantages to adding volunteer stations or placing career personnel within existing volunteer stations. In order for a community to support a volunteer or paid-on-call system for fire protection, the demographics and population of the community must first be analyzed. In addition, an evaluation must be conducted on the amount of service demand that has been experienced within a given area. Volunteerism in general has declined across North America over the last decade and that trend is expected to continue. In addition, communities that are rapidly developing tend to have a lower percentage of volunteerism as residents move away from urban areas. Often, suburban residents enjoy the lower population densities of their suburban community but routinely expect an urban level of service, particularly if they have relocated from an urban area. Currently, the Ardrossan community (Station 3) provides supplemental volunteer personnel to SCES and is able to support that function through legacy residents that have a tradition of volunteerism. Current service demand within that area is low but expected development may lead to an increase in call volume. SCES should work with planning officials to determine the forecasted population of future development and use that information to determine if the placement of career personnel in Station 3 would be advisable. Station 2 is located in an area with little in the way of population density and serves a very low demand. No significant future development is expected around Station 2 and the current volunteers are able to supplement SCES staff sufficiently. Adding career personnel to Station 2 would not be considered as fiscally prudent for the foreseeable future. The last element of providing fire protection to the rural areas is that of additional stations, either volunteer or career. As previously noted, placing a volunteer station in an area without a significant Page 167

177 population density or community center is unlikely to be sustainable. In addition, service demand in the rural areas outside current station locations is such that the placement of career personnel in new stations would be cost prohibitive. Therefore, no additional stations are recommended in the rural areas. Fire departments across North America are faced with the question of fire station type and configuration on a routine basis. In general, fire and emergency services stations can take on a variety of shapes and sizes with a variety of amenities. When planning for new or replacement stations, organizations should begin a planning and programming process early on so that a proper design is matched with the intended mission of that particular station. Many urban fire departments, particularly those with career personnel, have opted to build smaller community fire stations with a larger central facility that houses administration, training, and other specialized apparatus. These community fire stations are typically used to house two to four apparatus, depending on the needs of the community. In addition, these stations should be designed to accommodate the type of staffing that will be present such as volunteer, daytime on-duty, career residential, etc., and sufficient amenities to accommodate those staff should be included such as kitchens, sleeping areas and other personal need facilities. This concept of a large centralized facility with a number of smaller community stations is highly cost effective in that the initial costs are kept to a minimum and continued operational costs are often more efficient. SCES currently has a large facility serving both response and administrative duties and these functions will be moved to Station 6 upon its completion. If in the future the department wishes to replace Station 1, consideration should be given to an appropriate size for what will become a community fire station with fewer needs for administrative and other non-response activities. These issues will come into play in the near future as the potential for replacing the current volunteer fire stations is addressed. The current volunteer stations do not have sufficient room in the apparatus bays for working in, on, or around apparatus and no facilities are available for continuous staffing. If these stations are replaced in the near future, programming should be completed with the design team to ensure that facilities are included for career staffing. Apparatus Although personnel expenditures comprise a majority of most fire department s budgets, the deployment and replacement of appropriate apparatus based on risk can be an enormous factor in Page 168

178 budget planning. Many of today s modern fire apparatus cost in excess of $500,000 and some, particularly aerial apparatus, can cost more than $1,000,000. It is essential that fire departments ensure that apparatus are matched appropriately to the risks contained within the community and that proper planning is conducted for the future replacement of apparatus. Capital Replacement Planning Planning for the replacement of capital items, particularly apparatus, is not a practice that many fire departments utilize although SCES has been involved in capital replacement planning for some time. The following is an example capital improvement plan based on current levels of primary apparatus. It does not include light response vehicles such as command cars, boats, or other utility vehicles. If the department were to enter into a formal program of vehicle replacement and follow the schedule below, a current need of $3,325,333 would exist due to a lack of historical capital replacement planning. Looking forward, to fully fund this plan would require an annual capital fund contribution of $488,967 based on the current fleet. The following is an example capital replacement plan that covers each of the existing heavy primary apparatus. Page 169

179 Figure 63: Sample Capital Replacement Plan Unit Year Replacement Cost Annual Fund Contributions Current Cash Requirements Squad $1,200,000 $80,000 $240,000 Engine $295,000 $19,667 $236,000 Engine $275,000 $11,000 $220,000 Squad $1,100,000 $73,333 $220,000 Squad $675,000 $45,000 $225,000 Tower $1,200,000 $60,000 $540,000 Rescue $414,000 $27,600 $165,600 Tanker $250,000 $16,667 $183,333 Tanker $320,000 $21,333 $149,333 Tanker $175,000 NA $175,000 Tanker $475,000 $31,667 $31,667 Tanker $475,000 $31,667 $31,667 Special Ops 2006 $100,000 $10,000 $60,000 Special Ops $105,000 $10,500 $105,000 Ambulance $162,000 NA $162,000 Ambulance $162,000 $16,200 $162,000 Ambulance $162,000 $16,200 $145,800 Ambulance $162,000 $16,200 $48,600 Ambulance $162,000 $16,200 $48,600 Ambulance $162,000 $16,200 $16,200 Ambulance $162,000 $16,200 $16,200 Brush $125,000 $8,333 $50,000 Brush $125,000 $8,333 $100,000 Brush $125,000 $8,333 $108,333 Brush $125,000 $8,333 $125,000 TOTALS $488,967 $3,325,333 Aside from capital replacement planning, the apparatus currently assigned to the various SCES stations is well-distributed as outlined in the distribution and concentration sections of this report. Station 6 is already slated to house a newly deployed engine, which will increase the department s coverage of service demand and effective response force capabilities. No additional apparatus are recommended based on the foreseeable growth and development unless a substantial change is realized. Areas around the fringe of Sherwood Park should be monitored for additional growth and development as well as the associated water supply for those areas. Staffing Future staffing is perhaps the most difficult of all future service delivery models to forecast. As the demographics and development of a community change, so do the needs in regard to adequate staffing. Page 170

180 The department, as it stands today, is well staffed and those personnel are distributed such that each area of the community is within a reasonable travel distance for an effective response force for fire incidents. Since a majority of the department s service demand is medical in nature and SCES is a contractor to AHS to provide ALS transport services, the deployment of EMS resources (both physical and personnel) may become an issue in the future, particularly upon completion and opening of Strathcona Community Hospital. Projections provided to the department by AHS indicate that EMS service demand could as much as triple due to the new regional hospital. This increase in service demand, specifically the interfacility transfer component of the system, could negatively impact the ability of the department to continue to deliver the currently high level of EMS with comparable personnel schemas. Currently, each ALS transport ambulance operating within SCES is staffed with three personnel. This allows EMS units to respond to a majority of medical incidents within Strathcona County without the need for additional resources such as an engine or rescue. Those heavy resources and additional personnel are only dispatched when the incident is above the capabilities of a three-person crew to handle. As service demand increases, it may become necessary for SCES to approach AHS and petition for additional resources. Page 171

181 Short and Mid-Term Strategies Strathcona County Emergency Services It is common for those in the fire service to tout themselves or their department in terms such as a pride-driven organization that is at its best every day, or more simply, the best. The true mark of quality of the best fire departments, however, is one that works continuously for measurable improvement in organizational performance. By undertaking this study, those in positions of fire service leadership within Strathcona County have begun the task of organizational and system evaluation that is necessary to plan for and reach the goal of truly being the best. This is not to say that the fire department is not already operating at a high level. In fact, ESCI is pleased to report all available evidence shows that the fire department consistently provides excellent service to the citizens of Strathcona County and is frequently called upon throughout Alberta to provide assistance and expertise related to emergency services and disaster response. However, in keeping with the notion of continuous improvement wherein an unending loop of performance, measurement, and evaluation leads to system enhancements that would otherwise be impossible, ESCI offers recommendations to assist the county in implementing the strategies that will best benefit the public. The following list summarizes all of the recommendations provided throughout this report that are achievable in the short or mid-term, typically within the next five years. These recommendations have been compiled into a prioritized list for easy reference and include the page number where they are located within the body of the report. Priority 1 Immediate Internal Safety The recommendation deals with an improvement or initiative that solves an issue affecting the safety of firefighters and/or other personnel. These are not matters that simply make it easier to do a particular function but in fact make a currently unsafe situation, safe. No table of figures entries found. Priority 2 Legal or Financial Exposure The recommendation resolves a situation that is creating, or is likely to create, the opportunity for legal action against the entity or its officials. It also may be a situation that could subject the entity to a significant expense. Ensure that both full-time and part-time suppression staff receive similar formal basic safety training prior to being allowed to respond to emergency incident scenes, regardless of their role. 104 Page 172

182 Provide specific training for all fire and EMS driver/operators both full-time and part-time. 108 Establish dedicated training resources to the part-time division for consistent oversight Develop and mandate the use of formal lesson plans for all training sessions, particularly those that are manipulative in nature All training should be documented and maintained to ensure that each employee s skills and abilities are routinely reviewed and enhanced The department should make it a priority that all high-risk properties are inspected on a regularly scheduled basis Priority 3 Corrects a Service Delivery Issue The recommendation addresses a service delivery situation that, while it doesn t create an immediate safety risk to personnel or the public, does affect the ability to deliver service in accordance with its standards of performance. For example, adding a response unit to compensate for a growing response workload or delivering training needed to allow personnel to deal effectively with emergency responses already being encountered. SCES should develop and implement formal retention programs for both career and parttime/volunteer personnel to ensure viability of the volunteer program into the future SCES should work with county officials to ensure that sufficient and appropriate staffing and equipment are available to deal with the substantial wildfire risk within the community SCES should implement training on high-rise operations and be diligent in preparations as high-rise development continues throughout the county SCES should work with the County to increase the staffing dedicated to the training function The department should develop appropriate training facilities augmented by supporting technology The Training Branch should develop realistic and obtainable outcome goals Provide specific training for all existing officers that compliments the training provided to new officers Consider implementing a program to periodically evaluate member skill competency to ensure that personnel are continually able to perform critical tasks Develop and maintain a complete SCES personnel demographic profile database, including career and part-time staff The department should continue to emphasize the need for additional inspectors within the Fire Prevention Branch as outlined in the 2012 Business Plan Supplement the Fire Prevention and Public Education training provided to all suppression staff over and above the minimum provisions in NFPA 1001, 1021 and Utilize the Strathcona Census data for the development of all service provisions and long term department planning Seek approval of the Fire Prevention Business Plan from Council Formalize the process of providing Plans Review into the new bylaw Consider conducting commercial property Blue Print Comment Review into new bylaw Page 173

183 Link Emergency Service Bylaw to Land Use Bylaw to include both a general review and sign off requirement for SCES Formalize the past practice of local street design review into new bylaw Consider the development of a formal Lock Box Program Update the Emergency Services Bylaw to include enforcement provisions Ensure that all Fire Officers are empowered to function as Fire Guardians in the new bylaw for purposes of assisting FP Inspectors enforcement of the AFC and SCA provisions Develop clear annual performance measurements on service provisions stipulated in the new bylaw Develop a Risk-Based Community Assessment Standard and incorporate into the new bylaw as a means of ensuring community safety Increase the inspection capabilities and frequency of all High, Medium and Low Risk Occupancies by using the Strathcona County Census data as a guide Implement a record management system to comply with the Safety Code Act. Consideration should be given to simply adding the FP module of the FDM program that the department already owns Consider one new FTE position dedicated to Public Education and Marketing Consider adding more Inspection Officers; incrementally and strictly monitor their effectiveness to ensure all new resources are added only as required Introduce an in-service residential inspection program utilizing the resources of all full-time personnel and consider involving part-time suppression personnel Consider a cost recovery fee structure for all plans review using development charges Consider cross training Platoon Chiefs in Fire Investigations and Arson Investigation to assist with providing after hours coverage in lieu of the Fire Marshal and FPB Captain Consider developing a link partnership between Fire Investigators and the Local Police Service regarding Juvenile Fire Setters Priority 4 Enhances the Delivery of a Service The recommendation improves the delivery of a particular service. For example, relocating a fire station to improve response times to a particular part of town or adding a piece of equipment that will improve the delivery of a service. The department should continue the process of planning and coordinate those efforts into a formal long-range department master plan with the assistance of this document The department should consider implementing a dedicated position of Business Analyst to track business processes and ensure compliance with adopted long-range planning efforts SCES, with the assistance of county administration, should consider the implementation of a citizens advisory group to assist policy makers in level-of-service planning SCES should advise all personnel to ensure that buildings are secured at all times, both when facilities are occupied as well as when personnel are otherwise involved in incidents or external responsibilities Promotional processes should include standard qualifications outlined in NFPA SCES should implement an Officer Development Program that follows IAFC recommendations Page 174

184 SCES should continue working to ensure that an adequate supply of reserve apparatus is available so as not to reduce the department s overall reliability in the future SCES should consider implementing mobile computer terminals with status buttons to assist with the accurate collection of response time data The department should continue to work within the recommendations of FireSmart Communities SCES should work with local authorities in the appropriate areas to establish additional water points spread strategically throughout the county The Training Branch should have its own stand-alone inventory of equipment, including apparatus, and ensure that it remains operational at all times Purchase and utilize an incident command simulator to assist with the development of the officer rank and provide training and incident command Consider using low tech Skill Sessions type programs as a table top training exercises for inservice crews to be used for officer development and incident command training SCES should develop internal training facilities and equipment to enhance the overall training program and ensure available operational resources The training division should work with department leadership to formalize refresher training for all certified wild land firefighting personnel Consider training part-time fire fighters in the techniques of hazmat decontamination Consider purchasing advanced driver simulation technology to be shared with other County departments on a cost recovery basis (i.e., Police, Transit, and Public Works) Consider adding an additional new Lieutenant in 2013 to coincide with Station Develop realistic desired outcomes that are both achievable and measurable, so the Training Branch can add resources, human and capital, incrementally through a strategic approach Develop Training Branch annual performance indicators and report card Implement an electronic training records management system to increase efficiency in record keeping and training documentation SCES should work with the County to begin planning and budgeting for a separate formal training center that can be used by a number of agencies and disciplines Consider increasing the number of multi-company drills conducted with surrounding agencies to enhance the cooperative and coordinated efforts already in place Consider partnerships with other agencies, departments by creating a joint Multi-Agency Training Complex through expanding current plans at either station 4 or Consider implementing a periodic physical performance evaluation to ensure personnel are physically capable of performing critical tasks Consider conducting Post-Incident Analysis after each major occurrence The Training Branch should have its own inventory of equipment, including apparatus, ensuring that it remains operationally independent SCES should be aware that attempting to train all personnel in specialized fields such as hazmat or other special operations may be a burden on operations staff and is typically inefficient Establish a process for identifying and measuring the Community Risk Level for the purpose of development of both short-term and long-term service delivery requirements SCES should place a higher priority on materials management and should consider placing a sworn fire officer in a position to oversee the function Page 175

185 The Fire Chief should be tasked with the role of EM Director and the duties and responsibilities for EM should be returned to the Fire Chief and EM Branch within SCES SCES should work with county officials to dedicate a space for the Emergency Operations Center that can be stocked, set-up, and ready on a moment s notice in the event of a disaster or emergency Adopt formal initial alarm force response performance objectives based on NFPA 1720 and begin a process of periodic review and evaluation of performance improvement Priority 5 A Good Thing To Do The recommendation doesn t fit within any of the above priorities, but is still worth doing and can enhance the District s morale or efficiency. The County should maintain funding for the department s wellness and health initiatives as an injury and illness mitigation program Consider the introduction of leading edge incident command simulation capabilities Consider adding on-shift platoon trainers to assist the after-hours training and provide safety officer response Consider making the Field Level Risk Assessment Program mandatory for SCES Page 176

186 Conclusion The ESCI project team began collecting information concerning the fire services for Strathcona County in August The team members recognize that the report contains a large quantity of information and ESCI would like to thank the elected and appointed officials of Strathcona County as well as the officers and staff of Strathcona County Emergency Services for their tireless efforts in bringing this project to fruition. ESCI would also like to thank the various individuals and external organizations for their input, opinions, and candid conversations throughout this process. It is ESCI s sincere hope is that the information contained in this report is utilized to its fullest extent and that the emergency services provided to the citizens of Strathcona County are improved by its implementation. Page 177

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