~ca ~ ~ANADA. CAMBRJDGE It's all right here CITY OF CAMBRIDGE DILLON CONSUJ: JJ NG. Submitted by. Dillon Consulting Limited

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1 ~ca ~ ~ANADA CAMBRJDGE It's all right here CITY OF CAMBRIDGE Submitted by Dillon Consulting Limited DILLON CONSUJ: JJ NG

2 Commercial Confidential This document contains trade secrets or scientific, technical, commercial, financial and labour or employee relations information which is considered to be confidential to Dillon Consulting Limited ( Dillon ). Dillon does not consent to the disclosure of this information to any third party or person not in your employ. Additionally, you should not disclose such confidential information to anyone in your organization except on a need-to-know basis and after such individual has agreed to maintain the confidentiality of the information and with the understanding that you remain responsible for the maintenance of such confidentiality by people within your organization. If the head or any other party within any government institution intends to disclose this information, or any part thereof, then Dillon requires that it first be notified of that intention. Such notice should be addressed to: Dillon Consulting Limited, 235 Yorkland Boulevard, Suite 800, Toronto, Ontario M2J 4Y8, Attention: President

3 Master Fire & Emergency Services Plan Final Report July 2013 Prepared By: Dillon Consulting Limited

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5 Master Fire & Emergency Services Plan Final Report July 2013 EXECUTIVE SUMMARY This City of Cambridge Master Fire & Emergency Services Plan (MFESP) has been developed to provide the City of Cambridge with a strategic framework to assist Council in making decisions regarding the provision of fire protection services based on its local needs and circumstances. The analyses and recommendations contained within this plan have been prepared with the highest regard for the legislated responsibilities of the municipality as contained within the Fire Protection and Prevention Act (1997) (FPPA) and the Occupational Health and Safety Act (OHSA). Our interpretation of Council s commitment to public safety is to provide the optimal level of fire protection services as determined through the analyses of the needs and circumstances of the City of Cambridge as referenced in the FPPA, and in achieving the most cost effective and efficient level of fire protection services resulting in the best value for the community. Significant emphasis has been placed on the use of Public Fire Safety Guidelines (PFSG) and the resources provided by the Office of the Fire Marshal - Ontario (OFM). One of the primary roles of the OFM is to provide assistance to municipalities through the provision of information and processes to support determining the fire protection services a municipality requires based on its local needs and circumstances. The Comprehensive Fire Safety Effectiveness Model and Fire Risk Sub-Model are examples of the OFM documents that have been utilized to prepare this MFESP. Within the Province of Ontario the delivery of fire protection services are guided by the FPPA including the strategic optimization of the three lines of defence which include: I. Public Education and Prevention; II. Fire Safety Standards and Enforcement; and III.Emergency Response. Optimization of the first two lines of defence has proven to be an effective strategy in reducing the impacts of fire, and fire related injuries across the province. Recently the Fire Marshal indicated that further optimization of programs targeted specifically at the first two lines of defence must be a priority for fire services within Ontario. Emergency response including fire suppression resources are a necessary tool in managing the overall fire risk within a community. However, as indicated by the Fire Marshal, preventing fires through the delivery of education and prevention programs, and utilization of the appropriate fire safety standards and enforcement strategies is the most effective means to further reduce the impacts of fire, and fire related injuries across the province. The analyses within this report recognise three strategic priorities for the delivery of fire protection services within the City of Cambridge including: The utilization of a comprehensive Community Risk Profile to determine the level of existing and projected fire safety risks within the municipality as the basis for assessing the current and future fire protection services; The optimization of the first two lines of defence including public education and prevention, and the utilization of fire safety standards and enforcement to provide a comprehensive fire protection program within the municipality based on the results of the Community Risk Profile; and Emphasis on strategies that support the sustainability of fire protection services that provide the most cost effective and efficient level of fire protection services resulting in the best value for the community. Project No Page - i

6 Master Fire & Emergency Services Plan Final Report July 2013 The FPPA states that, "every municipality shall, establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention; and provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. In our view the Cambridge Fire Department reflects a progressive fire service that, with the support of the current and previous municipal Councils, has developed a comprehensive fire protection plan that is supported by a high degree of public satisfaction and support. The findings of this MFESP reflect that the City of Cambridge is currently providing a level of fire protection services commensurate with its legislated responsibilities as defined by the Fire Protection and Prevention Act, 1997 (FPPA). A summary of the City of Cambridge Master Fire & Emergency Services Plan recommendations are provided in the following sections. A review of the MFESP should be conducted at the five year horizon, to ensure it continues to align with and serve the needs of the department and the community it serves. Summary of Recommendations The following is a summary of our recommendations for each division of the Cambridge Fire Department (CFD): Administration Division (page 36) 1. Subject to the approval of this MFESP that the current Establishing and Regulating By-Law be updated to reflect the organizational structure of the CFD and the service level performance targets recommended within this report. 2. That the proposed organizational model, including revising the reporting structure of the Fire Prevention and Public Education Divisions, be approved for implementation in That the Fire Chief be directed to, with the assistance of the management team, begin the practice of developing formal comprehensive annual reports regarding the fire department including an updated Community Risk Profile summary within the annual report. This process should be combined with the Accredited Agency Annual Compliance Report required for the Commission on Fire Accreditation International. 4. That the department explore options for one records management system to be used for all record keeping in the various divisions to create efficiencies and avoid duplication of efforts for data entry. 5. That all of the Standard Operating Guidelines (SOGs) be reviewed and that they be updated as necessary. It is also recommended that the SOGs and the existing Directives be consolidated into one document to avoid duplication of information. SOGs should be consolidated, developed, formalized and approved by the Fire Chief to encompass all of the functions provided by each division within the department. 6. That consideration be given to adding administrative support to match the workload, as required as the department grows and evolves. This will require on-going monitoring of the workflow within the current administration staff. 7. That subject to Council approval to pursue the CFAI accreditation, consideration should be given to developing a position within the department to support the tasks and workload associated with the preparation for and maintenance of the accreditation process. This position could also be used to enhance other programs within the department, such as Community Emergency Management, which can require large amounts of time and effort to maintain and improve to higher program levels. Project No Page - ii

7 Master Fire & Emergency Services Plan Final Report July 2013 Fire Prevention Division (page 50) 1. That the proposed fire prevention inspection cycle performance measures identified within the MFESP be included within an updated Establishing and Regulating By-Law for the Cambridge Fire Department. 2. That the CFD consider options to streamline the existing paper based processes for records management in the Fire Prevention Division. Laptops or portable tablet devices can be used to electronically input inspection data on-site. 3. That the Community Risk Profile be updated on an annual basis and included within the CFD Annual Report to Council as a strategy to identify changes in community risk; evolving trends within the community; and to monitor the overall effectiveness and efficiency of the fire protection services provided. 4. That the Cambridge Fire Department consider further optimization of the Community-Based Fire Protection Model identified within this MFESP. This may require some modifications to the existing stations to provide workspace for the relocated prevention staff. 5. That an additional Fire Prevention Officer be added to the division to address the existing workload need. The five Fire Prevention Officers (including the Fire Prevention Captain) should then be assigned to a station to implement the Community-Based Fire Protection Model. 6. That consideration be given to options for expanding the available workspace and storage space for the Fire Prevention Division. Consideration could also be given to use of off-site storage solutions. This may be combined with implementation of the Community-Based Fire Protection Model. 7. As growth creates the need for an additional Fire Prevention Officer, at the same time as the growth creates the need for the 6 th Fire Station, and an additional Fire Prevention Officer should be added to the division at the time of the new station opening. Public Education Division (page 57) 1. That the Cambridge Fire Department consider methods to optimize the use of readily available technology, such as social networking sites (e.g. Facebook, Twitter, etc.), as well as public media (e.g. radio, television, City websites, etc.) to broaden the base of exposure for public education information and specifically the student population throughout the community. 2. That the Community Risk Profile be updated on an annual basis and included within the CFD Annual Report to Council as a strategy to identify changes in community risk; evolving trends within the community; and to monitor the overall effectiveness and efficiency of the public education services and programs provided. 3. That the Cambridge Fire Department considers further optimization of the Community-Based Fire Protection Model identified within this MFESP. This may require some modifications to the existing stations to provide workspace for the relocated Public Education staff. 4. That Council and CFD consider options to increase the public education programs and events over the coming five to 10 year horizon to respond to community growth as well as to response to increased vulnerable populations (e.g. seniors, children, etc.) within the City. Project No Page - iii

8 Master Fire & Emergency Services Plan Final Report July 2013 Training and Development Division (page 63) 1. That one member of each fire suppression platoon be assigned as a Training Coordinator to provide a more effective and efficient process for coordinating the training program on each shift with a consistent approach across all four platoons. 2. That live fire training continues to be included in the comprehensive annual training plan for all suppression staff. 3. That policies and procedures and all standard operating guidelines be formally written and implemented within the department for all areas relating to training. 4. That the division consider options to enhance the Company Officer training program to supplement departmental succession planning. Fire Suppression Division (page 100) 1. That CFD and Council consider identifying performance targets for the Suppression Division, including targets for dispatch times, turnout times, initial response and depth of response. 2. That CFD consider implementing a policy of staffing all support apparatus consistently, including the tanker, boats, hazmat and technical support vehicle through the utilization of on-duty firefighters re-assigned as required from primary response apparatus. 3. That the addition of a sixth station at the intersection of Maple Grove Road and Boxwood drive staffed with a minimum of four firefighters on a pump/quint be approved. 4. That the construction of Fire Station 6 commence in parallel with anticipated growth to ensure that proper services are in place when growth occurs in the area (estimated opening in 2016). 5. That consideration be given to adding a half-company (two firefighters) staffing a rescue vehicle at Station 2 in order to continuously improve the depth of response performance of the CFD. 6. That the CFD review each step of the current emergency call handling and dispatching processes to determine if there are any efficiencies to improve this component of the total emergency response time. 7. That the CFD identify and implement specific strategies targeted to reduce turnout time within the Fire Suppression Division. Project No Page - iv

9 Master Fire & Emergency Services Plan Final Report July 2013 Mechanical Division (page 105) 1. That the division continue to be staffed with two mechanic/firefighters; however, the responsibility of staffing the tanker while on-duty should be removed from the roles of these department staff members. 2. That a replacement cycle consistent with 15 years for a pumper, 20 years for an aerial and approximately seven to nine years for small vehicles continue, as this is reflective of industry best practice. Communications Division (page 109) 1. That the Chief Communications Officer (CCO) be involved in the creation of agreements relating to areas such as mutual aid, mapping and updates, radio procedures etc. to address concerns regarding dispatch resources and procedures. 2. That consideration be given to revising / adjusting current workstations and room layout in order to maximize the existing workspace in the Communications Division. 3. That all Communications Division radio inventory and equipment be placed in a convenient and secure area for easy access by shift personnel. Project No Page - v

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11 Master Fire & Emergency Services Plan Final Report July 2013 TABLE OF CONTENTS PAGE EXECUTIVE SUMMARY...I 1.0 INTRODUCTION Fire Protection and Prevention Act, Office of the Fire Marshal - Ontario PFSG Framework for Setting Guidelines within a Provincial- Municipal Relationship PFSG Selection of Appropriate Fire Prevention Programs PFSG Operational Planning: An Official Guide to Matching Resource Deployment and Risk PFSG Comprehensive Fire Safety Effectiveness Model (CFEM) PFSG Fire Protection Review Process Occupational Health and Safety Act Commission on Fire Accreditation International Sustainability Plan Summary COMMUNITY RISK PROFILE Community Background Summary of Community Risk Profile ADMINISTRATION SERVICES DIVISION Mission Statement and Department Values Department Commitments Department Organization and Staffing Divisions and Organization Department Management Team Fire Chief Deputy Chief Administrative Support Proposed Organizational Model Administrative Workspace Annual Report By-laws & Agreements By-laws Mutual Aid Agreements Automatic Aid Agreements (Fire Protection Agreements) Medical Tiered Response Agreement Fees for Service Capital and Operating Budgets Departmental Policies and Procedures Departmental Records Management Corporate Emergency Planning Community Emergency Management Coordinator Community Emergency Management Program Committee (CEMPC) Summary and Recommendations FIRE PREVENTION DIVISION Staffing Project No Page - i

12 Master Fire & Emergency Services Plan Final Report July Key Functions Division Activities and Programs Fire Prevention Inspections Fire Investigations Fire Safety Plans Staffing Resource Needs Workspace Records Management Community-Based Fire Protection Model Fire Prevention Priorities Summary Summary and Recommendations PUBLIC EDUCATION DIVISION Existing Staffing Key Functions Division Activities and Programs Public Education and Awareness Programs Public Education Priorities Summary Workspace Records Management Summary and Recommendations TRAINING AND DEVELOPMENT DIVISION Key Functions of the Division Staff Resources Annual Training Plan Company Officer Development Succession Planning Promotional Process Specialty Training Programs Live Fire Training Policies and Procedures Records Management Training Facilities Summary and Recommendations FIRE SUPPRESSION Fire Suppression Staffing Fire Stations Importance of Time with Respect to Fire Growth Total Response Time Fire Suppression Guidelines, Industry Standards, Industry Best Practices PFSG Operational Planning: An Official Guide to Matching Resource Deployment and Risk National Fire Protection Association (NFPA) 1710 Standard Initial Arriving Company Initial Response Initial Full Alarm Assignment Depth of Response Current Emergency Response Overview Call Volume Station Workload Incident Types Project No Page - ii

13 Master Fire & Emergency Services Plan Final Report July Percentage of Incident Type Response Time Assessment Dispatch Time Turnout Time Travel Time Total Response Time Assessment of Response Coverage Methodology Analytic Results Coverage Assessment Scenarios Summary and Recommendations MECHANICAL DIVISION Division Responsibilities Divisional Staffing Current Apparatus and Equipment Reserve Fleet Considerations Maintenance Facilities Fleet Replacement Plan Records Management Summary and Recommendations COMMUNICATION DIVISION & TECHNOLOGY REVIEW Staffing and Supervision Dispatch and Radio System AVL Technology Records Management Facilities/Workspace Recommendations STUDY CONSULTATION Steering Committee Project Meetings Public and Stakeholder Consultation Stakeholders Community Information Open House Summary of Study Consultation IMPLEMENTATION PLAN Project No Page - iii

14 Master Fire & Emergency Services Plan Final Report July 2013 LIST OF TABLES Table 1: Summary of Risk and Response Assessment Table 2: Cambridge Fire Department Staffing Table 3: Fees for Service Table 4: Summary of 2011 Fire Prevention Activities Table 5: City of Cambridge Fire Inspection Performance Measures Table 6: Summary of Fire Prevention Services and Annual Workload Estimates Table 7: Fire Prevention Priority Setting Worksheet Table 8: Public Education Programs Offered by the CFD Table 9: Public Education Priority Setting Worksheet Table 10: CFD Existing Internal Training Programs Table 11: Current Stations, Apparatus & Minimum Staffing Table 12: Overtime Costs to Staff Tanker 1 ( ) Table 13: Existing Station Descriptions Table 14: Fire Growth Rates as Defined by Society of Fire Protection Table 15: Response Types Table 16: Summary of Coverage Assessment Scenarios and Results Table 17: Apparatus and Model Year (Trucks) Table 18: Reserve Fleet Table 19: Implementation Plan LIST OF FIGURES Figure 1: Factors in a Comprehensive Fire Safety Effectiveness Model Figure 2: Comprehensive Model applied to a typical Fire Department Figure 3: Cambridge Fire Department Existing Organizational Chart Figure 4: Proposed Departmental Organizational Chart Figure 5: Current Reporting Structure of the Fire Prevention Division Figure 6: Current Reporting Structure of the Public Education Division Figure 7: Current Reporting Structure of the Training Division Figure 8: Current Reporting Structure of the Suppression Division Figure 9: Existing Fire Station Locations Figure 10: OFM Fire Progression Curve Figure 11: Initial Response Fire Scene Responsibilities Figure 12: Depth of Response Fire Scene Responsibilities Project No Page - iv

15 Master Fire & Emergency Services Plan Final Report July 2013 Figure 13: Emergency Call Volume by Year Figure 14: Station Workload First Responding Vehicle Only Figure 15: Historical Call Volume by Type Figure 16: Historic Average Call Volumes ( ) by Percentage Type Figure 17: Historical Dispatch Times by Type Figure 18: Historical Turnout Times by Type Figure 19: Turnout Time by Station (Fire calls only) Figure 20: Historical Travel Times (First Arriving Vehicle) by Type Figure 21: Travel Times by Station (Fire calls only) Figure 22: Historical Total Response Times by Type Figure 23: Total Response Time by Station (Fire calls only) Figure 24: City of Cambridge Existing and Future Service Areas Figure 25: Existing First Response, Five Station Model Figure 26: Existing Depth of Response, Five Station Model Figure 27: Existing Depth of Response by Minute, Five Station Model Figure 28: Future First Response, Six Station Model Figure 29: Future Depth of Response, Six Station Model Figure 30: Future Depth of Response by Minute, Six Station Model Figure 31: Future 6 Station Depth of Response with Additional Rescue Vehicle Figure 32: Current Reporting Structure of the Mechanical Division Figure 33: Current Reporting Structure of the Communications Division APPENDICES Appendix A: PFSG Framework for Setting Guidelines within a Provincial-Municipal Relationship Appendix B: PFSG Selection of Appropriate Fire Prevention Programs Appendix C: PFSG Operational Planning: An Official Guide to Matching Resource Deployment and Risk Appendix D: PFSG Comprehensive Fire Safety Effectiveness Model Appendix E: PFSG Fire Protection Review Process Appendix F: PFSG Economic Circumstances Appendix G: PFSG Fire Risk Assessment Appendix H: PFSG Capabilities of Existing fire Protection Services Appendix I: Community Risk Assessment Appendix J: Definitions of OFM Response Types Appendix K: Public Consultation Materials Project No Page - v

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17 Master Fire & Emergency Services Plan Final Report July INTRODUCTION The City of Cambridge initiated this City of Cambridge Master Fire & Emergency Services Plan (MFESP) study as part of its comprehensive community planning process to guide the delivery of fire protection services over the next ten years. Development of a MFESP recognizes the continued commitment of Council and senior staff to providing the highest level of services and programs to the community in the most cost-effective and efficient manner. This MFESP provides a complete review of the current operations of the Cambridge Fire Department (CFD) to assist Council in establishing key objectives for the department. The plan includes recommendations to address both short-term (five year) and long-term (10 year) strategies for the municipality, consistent with the fire master planning process outlined within the Office of the Fire Marshal - Ontario, Shaping Fire-Safe Communities Initiative. A review of the MFESP should be conducted at the five year horizon, to ensure it continues to align with and serve the needs of the department and the community it serves. The overarching goal of this report is to present a clear understanding of the existing and future requirements of the Cambridge Fire Department, referencing best practices, including relevant standards and legislation. This report was prepared to respond to the following objectives identified by the City of Cambridge and contained within the Request for Proposal for this study: Conduct a comprehensive review of the non-suppression and suppression services of the fire department; Assess community needs and risk, such as those resulting from the impacts of existing and future growth; Review applicable legislation, regulations, best practices and existing policies and procedures relating to the fire department; Involve the public and stakeholders through innovative and targeted consultation; Follow the fire master planning process of the Office of the Fire Marshal - Ontario (OFM); and Implement key components of the City s Corporate Sustainability Plan, as they relate to fire and emergency services. 1.1 Fire Protection and Prevention Act, 1997 Within the Province of Ontario the relevant legislation for the operation of a fire department is contained within the Fire Protection and Prevention Act, 1997 (FPPA). The following are applicable sections of the FPPA for reference purposes: Project No Introduction Page - 6

18 Master Fire & Emergency Services Plan Final Report July 2013 PART I DEFINITIONS Definitions 1.(1) In this Act, fire chief means a fire chief appointed under section 6 (1), (2) of (4); ( chef des pompiers ) fire code means the fire code established under Part IV; ( code de prevention des incendies ) fire department means a group of firefighters authorized to provide fire protection services by a municipality, group of municipalities or by an agreement made under section 3; ( service d incendie ) Fire Marshal means the Fire Marshal appointed under subsection 8 (1); ( commissaire des incendies ) fire protection services includes fire suppression, fire prevention, fire safety education, communication, training of persons involved in the provisions of fire protection services, rescue and emergency services and the delivery of all those Services; ( services de protection contre les incendies ) municipality means the local municipality as defined in the Municiapl Act, 2001; ( municipalite ) prescribed means prescribed by regulation ( prescript ) regulation means a regulation made under this Act; ( reglement ) volunteer firefighter means a firefighter who provides fire protection services either voluntarily or for a nominal consideration, honorarium, training or activity allowance; ( pompier volontaire ) Application of definition of firefighter Automatic aid agreements (3) The definition of firefighter in subsection (1) does not apply to Part IX. 1997, c. 4, s. 1 (2) (4) For the purposes of this Act, an automatic aid agreement means any agreement under which, (a) a municipality agrees to ensure the provision of an initial response to fires and rescues and emergencies that may occur in a part of another municipality where a fire department in the municipality is capable of responding more quickly than any fire department situated in the other municipality, or (b) a municipality agrees to ensure the provision of a supplemental response to fires, rescues and other emergencies that may occur in a part of another municipality where a fire department situated in the municipality is capable of providing the quickest supplemental response to fires, rescues and other emergencies occurring in the part of the other municipality. 1997, c. 4, s. 1 (4) PART II RESPONSIBILITY FOR FIRE PROTECTION SERVICES Municipal responsibilities 2.(1) Every municipality shall (a) establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention, and (b) provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances. Services to be provided Automatic aid agreements (3) In determining the form and content of the program that it must offer under clause (1)(a) and the other fire protection services that it may offer under clause (1)(b), a municipality may seek the advice of the Fire Marshal (6) A municipality may enter into an automatic aid agreement to provide or receive the initial or supplemental response to fires, rescues and emergencies. Project No Introduction Page - 7

19 Master Fire & Emergency Services Plan Final Report July 2013 Review of municipal fire services Failure to provide services Regulation Fire departments Same Exception Same Fire chief, municipalities Same Responsibility to council (7) The Fire Marshal may monitor and review the fire protection services provided by municipalities to ensure that municipalities have met their responsibilities under this section, and if the Fire Marshal is of the opinion that, as a result of a municipality failing to comply with its responsibilities under subsection (1), a serious threat to public safety exists in the municipality, he or she may make recommendations to the council of the municipality with respect to possible measures the municipality may take to remedy or reduce the threat to public safety. (8) If a municipality fails to adhere to the recommendations made by the Fire Marshal under subsection (7) or to take any other measure that in the opinion of the Fire Marshal will remedy or reduce the threat to public safety, the Minister may recommend the Lieutenant Governor in Council that a regulation be made under subsection (9). (9) Upon the recommendation of the Minister, the Lieutenant Governor in council may make regulations establishing standards for fire protection services in municipalities and requiring municipalities to comply with the standards. (1) A fire department shall provide fire suppression services and may provide other fire protection services in a municipality, group of municipalities or in territory without municipal organization. 1997, c. 4, s. 5 (1) (2) Subject to subsection (3), the council of a municipality may establish more than one fire department for the municipality. 1997, c. 4, s. 5 (2) (3) The council of a municipality may not establish more than one fire department if, for a period of at least 12 months before the day this Act comes into force, fire protection services in the municipality were provided by a fire department composed exclusively of full-time firefighters. 1997, c. 4, s. 5 (3) (4) The councils of two or more municipalities may establish one or more fire departments for the municipalities. 1997, c. 4, s. 5 (4) 6. (1) If a fire department is established for the whole or part of a municipality or for more than one municipality, the council of the municipality or the councils of the municipalities, as the case may be, shall appoint a fire chief for the fire department. (2) The council of a municipality or the councils of two or more municipalities may appoint a fire chief for two or more fire departments. (3) A fire chief is the person who is ultimately responsible to the council of a municipality that appointed him or her for the delivery of fire protection services Powers of a fire chief (5) The fire chief may exercise all powers assigned to him or her under this Act within the territorial limits of the municipality and within any other area in which the municipality has agreed to provide fire protection services, subject to any conditions specified in the agreement. PART III FIRE MARHALL Appointment of Fire Marshal 8 (1) There shall be a Fire Marshal who shall be appointed by the Lieutenant Governor in Council. Project No Introduction Page - 8

20 Master Fire & Emergency Services Plan Final Report July 2013 Powers of Fire Marshal 9.(1) the Fire Marshal has the power, (a) to monitor, review and advise municipalities respecting the provision of fire protection services and to make recommendations to municipal councils for improving the efficiency and effectiveness of those services; (b) to issue directives to assistants to the Fire Marshal respecting matters relating to this Act and the regulations; (c) to advise and assist ministries and agencies of government respecting fire protection services and related matters; (d) to issue guidelines to municipalities respecting fire protection services and related Matters; (e) to co-operate with anybody or person interested in developing and promoting the principles and practices of fire protections services; (f) to issue long service awards to persons involved in the provision of fire protection services; and (g) to exercise such other powers as may be assigned under this Act or as may be necessary to perform any duties assigned under this Act. Duties of Fire Marshal 9.(2) It is the duty of the Fire Marshal, (a) to investigate the cause, origin and circumstances of any fire or of any explosion or condition that in opinion of the Fire Marshal might have caused a fire, explosion, loss of life, or damage to property; (b) to advise municipalities in the interpretation and enforcement of this Act and the regulations; (c) to provide information and advice on fire safety matters and fire protection matters by means of public meetings, newspaper articles, publications, electronic media and exhibitions and otherwise as the Fire Marshal considers available; (d) to develop training programs and evaluation systems for persons involved in the provision of fire protection services and to provide programs to improve practices relating to fire protection services; (e) to maintain and operate a central fire college; (f) to keep a record of every fire reported to the Fire Marshal with the facts, statistics and circumstances that are required under the Act; (g) to develop and maintain statistical records and conduct studies in respect of fire protection services; and (h) to perform such other duties as may be assigned to the Fire Marshal under this Act. Project No Introduction Page - 9

21 Master Fire & Emergency Services Plan Final Report July Office of the Fire Marshal - Ontario As indicated within the FPPA the duties of the Fire Marshal include responsibilities to assist in the interpretation of the Act, to develop training and evaluation systems and enforcement of the Act and its regulations. One of these roles includes the review of compliance with the minimum requirements of a Community Fire Safety Program, which must include: A smoke alarm program with home escape planning; The distribution of fire safety education material to residents/occupants; Inspections upon complaint or when requested to assist with code compliance (including any necessary code enforcement); and A simplified risk assessment. The OFM has developed Public Fire Safety Guidelines (PFSG) to assist municipalities in making informed decisions with regard to determining local needs and circumstances and achieving compliance with the FPPA PFSG Framework for Setting Guidelines within a Provincial- Municipal Relationship PFSG (attached as Appendix A) is an example of the guidelines that have been developed. Information within the background section of this document includes the following: Municipalities are compelled to establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention. The act also states that municipalities are responsible for arranging such other fire protection services as they determine may be necessary according to their own needs and circumstances. The relationship between the province and municipalities is based on the principle that municipalities are responsible for arranging fire protection services according to their own needs and circumstances. As referenced in this document, guidelines represent one component of the strategy that the Ministry of Community Safety and Correctional Services proposes for public fire protection in Ontario. The strategy referenced includes: Clarifying municipal responsibility for local fire protection, while protecting the provincial interest in public safety. Removing remaining legislative barriers which forestall the restructuring and reorganization of municipal fire services. Facilitating a shift in focus which places priority on fire prevention and public education as opposed to fire suppression. Providing municipalities with decision-making tools to help them provide services according to their own needs and circumstances. Facilitating more active involvement of the private sector and other community groups in fire prevention and public education through the Fire Marshals Public Fire Safety Council. Project No Introduction Page - 10

22 Master Fire & Emergency Services Plan Final Report July PFSG Selection of Appropriate Fire Prevention Programs PFSG and (attached as Appendix B) identifies the four minimum requirements of the FPPA Section 2. (1) (a) establish a program in the municipality which must include public education with respect to fire safety and certain components of fire prevention including: Simplified risk assessment; A smoke alarm program; Fire safety education material distributed to residents/occupants; and Inspections upon compliant or when requested to assist with code compliance. PFSG Operational Planning: An Official Guide to Matching Resource Deployment and Risk PFSG (attached as Appendix C) was developed by the OFM to assist municipalities in meeting their responsibilities under Section 2. (1) (b) provide such other fire protection services as it determines may be necessary in accordance with its needs and circumstances of the FPPA. As stated by the OFM in PFSG Operational Planning: An Official Guide to Matching Resource Deployment and Risk : The overall public safety objective of a municipality is to provide the community with an optimal level of fire protection. Fire suppression is one aspect of the three lines of defence; the other two lines are Public Education and Prevention and Fire Safety Standards and Enforcement. A municipality needs to evaluate its existing fire suppression capabilities to ensure that it is managing all fire risk levels within the community, responding to and addressing fires that occur, and meeting public and council expectations. PFSG Comprehensive Fire Safety Effectiveness Model (CFEM) PFSG (Attached as Appendix D) was developed by the OFM to assist communities in evaluating their level of fire safety. The model recognizes that there is more to providing fire protection services than just building fire stations, purchasing equipment and deploying firefighters. The CFEM confirms that the fire service within Ontario is in a period of change. In response to increasing public expectations and diminishing financial resources municipalities are being forced to critically assess their fire protection needs in identifying new and innovative ways to providing the most cost effective fire protection services. The following is an excerpt from PFSG : This model looks at community fire protection as the sum of eight key components, all of which impact on the fire safety of the community. Deficiencies in one of the components can be offset by enhancements in another component or components. The CFEM identifies that every municipality should be guided by a master or strategic plan covering a planning horizon of five to ten years. Shifting from the traditional focus of hazard identification and fire suppression response the CFEM recognizes that more comprehensive risk assessment and optimizing the use of fire prevention and control systems are part of a paradigms shift within the fire service. Project No Introduction Page - 11

23 Master Fire & Emergency Services Plan Final Report July 2013 Figure 1 below shows each of the factors which make up the comprehensive model. Although the chart is divided equally, each factor will in reality contribute differently to the total level of protection provided to a community. Figure 1: Factors in a Comprehensive Fire Safety Effectiveness Model (Source: OFM PFSG ) Figure 2 shows how the comprehensive model can be applied to a typical fire department. The "gap" depicts the difference between the existing level of protection and the ideal. Figure 2: Comprehensive Model applied to a typical Fire Department (Source: OFM PFSG ) Utilizing the framework of the CFEM and the fire protection service assessment processes developed by the OFM the primary objective of this MFESP is to identify through evidence based analyses the presence of any existing gap in fire protection services within the City of Cambridge. Project No Introduction Page - 12

24 Master Fire & Emergency Services Plan Final Report July 2013 In response to any existing gaps identified this MFESP recommends strategies that are intended to optimize the use of the three lines of defence including: I. Public Education and Prevention II. Fire Safety Standards and Enforcement III. Emergency Response A further description of each line of defence includes: I. Public Education and Prevention: Educating residents of the community on means for them to fulfill their responsibilities for their own fire safety is a proven method of reducing the incidence of fire. Only by educating residents can fires be prevented and can those affected by fires respond properly to save lives, reduce injury and reduce the impact of fires; II. Fire Safety Standards and Enforcement: Ensuring that buildings have the required fire protection systems, safety features, including fire safety plans, and that these systems are maintained, so that the severity of fires may be minimized; III. Emergency Response: Providing well trained and equipped firefighters directed by capable officers to stop the spread of fires once they occur and to assist in protecting the lives and safety of residents. This is the failsafe for those times when fires occur despite prevention efforts. The CFEM emphasises the importance and value of preventing a fire. This is important from both an economic and public safety perspective, at the same time, ensuring an appropriate level of health and safety for firefighters. The model also recognizes that developing programs and providing resources to effectively implement the first line of defence (a proactive public education and prevention program) can be an effective strategy to reduce and potentially minimize the need for the other lines of defence PFSG Fire Protection Review Process Analysing local circumstances is a core component of the fire master planning process. PFSG (Attached as Appendix E) identifies the three main issues that define local circumstances including the guidelines to be utilized: PFSG Economic Circumstances (Attached as Appendix F) PFSG Fire Risk Assessment (Attached as Appendix G) PFSG Capabilities of Existing Fire Protection Services (Attached as Appendix H) Detailed analysis of these issues is included within this report to provide the background and rational to support the recommendations of this Master Fire & Emergency Services Plan. 1.3 Occupational Health and Safety Act The Occupational Health and Safety Act, R.S.O (OHSA) requires every employer to, take every precaution reasonable in the circumstances for the protection of the worker. The OHSA provides for the appointment of committees, and identifies the Ontario Fire Services Section 21 Advisory Committee as the advisory committee to the Minister of Labour with the role and responsibility to issue guidance notes to address firefighters-specific safety issues within Ontario. Project No Introduction Page - 13

25 Master Fire & Emergency Services Plan Final Report July 2013 Where 20 or more workers are regularly employed at a workplace, the OHSA requires the establishment of a Joint Health and Safety Committee (JHSC). The committee must hold regular meetings including the provision of agendas and minutes. Firefighter safety must be a high priority in considering all of the activities and services to be provided by a fire department. This must include the provision of department policies and procedures, or Operating Procedures (OPs) that are consistent with the direction of the OHSA Section 21 Guidance Notes for the fire service. 1.4 Commission on Fire Accreditation International 1 Cambridge Fire Department initiated the process of attaining accreditation through the Centre for Public Safety Excellence (CPSE), which is administered by the Commission on Fire Accreditation International (CFAI) in the fall of There are four steps to become an accredited agency: 1. Becoming a Registered Agency 2. Becoming an Applicant Agency 3. Becoming a Candidate for Accreditation 4. Achieving Accreditation Cambridge Fire Department is currently working towards becoming an applicant agency. Once accreditation is achieved, it is valid for five years. The CFAI defines accreditation as: a comprehensive self-assessment and evaluation model that enables organizations to examine past, current, and future service levels and internal performance and compare them to industry best practices. The accreditation process is believed to lead to improved service delivery by assisting the fire department to evaluate community risk and safety needs, evaluate department performance and implement planned continuous improvement. It assists the department to assess performance and implement efficiencies. The CFAI works to achieve the following mission: The Commission on Fire Accreditation International (CFAI) is committed to assisting and improving fire and emergency service agencies around the world in achieving organizational and professional excellence through its strategic self-assessment model and accreditation process to provide continuous quality improvement and enhancement of service delivery to the community and the world at large. The basis of the CFAI is a comprehensive self-assessment process which strives to encourage fire departments to: Assure colleagues and the public that they have definite missions and objectives that are appropriate for the jurisdictions they serve Provide a detailed evaluation of the services they provide to the community 1 Quoted information within this section is sourced from the Centre for Public Safety Excellence at: Project No Introduction Page - 14

26 Master Fire & Emergency Services Plan Final Report July 2013 Identify areas of strength and weakness within the department Create methods or systems for addressing deficiencies while building organizational success Encourage professional growth for both the department and its personnel Provide a forum for the communication of organizational priorities Foster national recognition by colleagues and the public Create a mechanism for developing strategic and program action plans Performance Evaluation Categories The CFAI accreditation model includes performance evaluation categories which are parallel to the scope considered within the Master Fire & Emergency Services Plan. The accreditation evaluation categories include: Assessment and Planning Essential Resources External Systems Relations Financial Resources Goals and Objectives Governance and Administration Human Resources Physical Resources Programs Training and Competency The development of this Master Fire & Emergency Services Plan supports the process of accreditation and will assist the department with the self-evaluation process and the planned continuous improvement, required for accreditation. 1.5 City of Cambridge Vision Statement The City of Cambridge Vision Statement reads as follows: Cambridge celebrates the uniqueness of its founding communities and is united by its heritage, rivers, cultures and common future. Cambridge residents and visitors enjoy the natural environment, safe, clean, caring, sustainable and accessible neighbourhoods, with a wide variety of lifestyle and housing options and ample cultural and recreational opportunities. Cambridge, as a community of opportunity, encourages business growth and transition, entrepreneurial spirit, strong leadership, efficient government and the provision of municipal services, personal growth and civic pride. Project No Introduction Page - 15

27 Master Fire & Emergency Services Plan Final Report July 2013 The vision statement is the backbone of all plans, actions and strategies undertaken by the City. The Master Fire and Emergency Services Plan reflects the elements within the vision statement by: identifying and supporting the unique communities that comprise the City of Cambridge; planning for the protection and prevention of life and property loss; planning and supporting the provision of fire and emergency services to the residents, businesses and community services within the City; and providing an incremental implementation plan to support the leadership and growth of the CFD. 1.6 Sustainability Plan The City of Cambridge initiated a planning process to develop its first Corporate Sustainability Plan (CSP). The plan provides an overarching document that will guide the Corporation's actions and provide a process to implement ongoing Master Plans/Strategic Plans with a focus to consider new sustainability initiatives in the longer term. The overall goal of the Corporate Sustainability Plan is to foster a strong sustainability culture within the City s operations that permeates through to its programs, policies, initiatives and practices that, in turn, support the four pillars (cultural, economic, environmental and social) of a sustainable community. The Master Fire & Emergency Services Plan identifies recommendations and initiatives that support the key components of the City s Corporate Sustainabiltiy Plan relating to economic, social, cultural and environmental impacts of the fire department. 1.7 Summary This MFESP has been developed following the framework of assessing the delivery of municipal fire protection services included within the current Public Fire Safety Guidelines authored by the Office of the Fire Marshal - Ontario. Referencing best practices, including relevant standards and legislation, this MFESP includes evidence-based analyses of the existing fire protections services provided by the City of Cambridge Fire Department and identifies options for Council s consideration. Current City initiatives, such as the Corporate Sustainability Plan and the CFAI accreditation process have been considered within the study and incorporated into the Master Fire & Emergency Services Plan. Project No Community Risk Profile Page - 16