Armstrong – Spallumcheen Fire Services Review

Spallumcheen-Armstrong Fire Services Review 2013 of 132

Armstrong – Spallumcheen Fire Services Review

Dave Mitchell & Associates Ltd. February 2014


Table of Contents

Executive Summary ...................................................................................................................... 4

Legal Structure .......................................................................................................................... 6

Administration .......................................................................................................................... 18

Occupational Health and Safety .............................................................................................. 18

Mutual Aid Agreements ........................................................................................................... 24

Standards of Service ................................................................................................................... 28

NFPA 1221 .............................................................................................................................. 28

NFPA 1720 .............................................................................................................................. 31

Operational Review ..................................................................................................................... 32

Review with Staff ..................................................................................................................... 32

Apparatus ................................................................................................................................ 36

Training ....................................................................................................................................... 41

Overview of Training and Training Standards ......................................................................... 41

Records Keeping ........................................................................................................................ 52

Fire Prevention ........................................................................................................................ 55

Emergency Response Analysis .................................................................................................. 56

Total Events by Year ............................................................................................................... 57

Total Events by Month ............................................................................................................. 58

Responses by Day of the Week .............................................................................................. 59

Responses by Hour ................................................................................................................. 60

Responses by Fire Hall Area ................................................................................................... 61

Response by Event Type ........................................................................................................ 63

Fire Hall ....................................................................................................................................... 68

Fire Hall Location ........................................................................................................................ 79

Fire Underwriters Survey ............................................................................................................ 84

Budgets and Finances ................................................................................................................ 94

Summary of Recommendations .................................................................................................. 99

Priorities .................................................................................................................................... 105

Risk/Benefit Analysis with Timeline .......................................................................................... 106

Appendix 1: List of Acronyms and Referenced NFPA Standards ............................................. 115

Appendix 2: Firefighter Training ................................................................................................ 117

BC Basic Fire Fighting Program ............................................................................................ 119


Live Fire Training ................................................................................................................... 119

Live Fire Level I ..................................................................................................................... 121

Live Fire Level II .................................................................................................................... 123

Live Fire Level III ................................................................................................................... 123

Appendix 3: Fire Department Health and Safety Program ........................................................ 125

Appendix 4: Consultants’ Resumes .......................................................................................... 128


Executive Summary The Armstrong—Spallumcheen Volunteer Fire Department (the “Department” or “ASVFD”) is somewhat unique in that it is a shared service between the City of Armstrong (the “City” or “Armstrong”) and the Township of Spallumcheen (the “Township” or “Spallumcheen”). The Department operates from a single fire hall located in Armstrong and provides service to approximately 10,000 residents across the two municipalities. The services provided include fire suppression, inspections and response to motor vehicle accidents; the Department does not provide a general first medical responder (“FMR”) program. The underlying bylaw structure enabling the Department to operate requires updating to address a lack of clarity regarding its operational authority, organization and reporting structure. The Department’s operating budget is currently in the range of $400,000 per year, which is not uncommon for fire departments of this size and composition. Its capital budget, however, can dramatically affect the annual costs, as either new apparatus or fire hall renovations impact expenditures. The Department should consider building capital reserves for such expenditures to better manage the inter-annual variability in its budget. Further agreement on capital and operating costs will be necessary as an expansion or renovation of the current fire hall proceeds and consideration is given to a second, satellite fire hall in Spallumcheen. This second fire hall is necessary to provide appropriate coverage in areas outside of the acceptable travel distance as determined by the Fire Underwriters. The Department’s training records are generally quite good, however some of the challenges which were identified include a lack of comprehensive individual training records for each member (to record all aspects of training, including weekly practice nights), a lack of back-ups to these training records, and the challenge the Department faces in utilizing a computerized records management system (“RMS”). Thorough and complete record keeping is a requirement of WorkSafe BC and a necessary measure to ensure that the Department, fire officers, firefighters and local government are not unduly exposed to risk or liability. There are several recommendations in the Records section dealing with various records-related issues.

Equally important, there is a set of recommendations relating to firefighter and fire officer training issues. In general, the Department has done a very good job of training its members. Its focus on ensuring that the volunteer firefighters receive regular live fire training is an approach that is to be commended. The training recommendations principally relate to the development of proficiency standards for all firefighting roles and skills. Certain of the recommendations on records keeping and the operational guidelines, however, also impact (or are affected by) the training recommendations.

The Deputy Fire Chief is the primary member responsible for training, although other qualified members are assigned training duties according to their experience and qualifications. Deputy Chief Crick suggested that, on average, it requires approximately one month to complete the 40 hour North Okanagan Regional District Basic Program (“NORD Basic Program”), which includes


live fire training, after which members are at a level where they would be qualified to conduct interior fire operations as a team member.

According to the Fire Chief and Deputy Chief, the Department will conduct offensive interior operations (fire attacks and primary searches) depending on the nature of the incident and the number and skill level of the members in attendance. The general criteria used to determine which members are capable of performing interior operations are that they must have completed the NORD Basic Program and their attendance at weekly practice sessions along with their actual levels of experience. That determination, however, generally is not made formally. Rather, it is left to the Incident Commander’s discretion as to whether a member is sufficiently trained for an interior attack.

At present, approximately 19 of 38 Department members are deemed sufficiently trained for interior operations. The operational guidelines (“OG”s) provided by the Department, however, do not cover all of the necessary aspects of conducting interior operations (an issue addressed in detail in this report). Absent such guidelines and individual training records to indicate the areas of training successfully completed by each member, the Department relies on the Incident Commander’s judgment for determining whether or not to enter a fire-involved structure and which members are capable and qualified to do so.

This approach has drawbacks and presents some potential risks. Appropriate written operational guidelines covering these types of operations are a WorkSafe BC requirement. In addition, there are concerns as to whether the Department’s training records could easily and readily identify all of an individual’s training history, in the context of a formal or contested review, to establish the current training level (skills and proficiency) of a particular member.1

As discussed in greater detail in the report, these shortcomings should be addressed through improved comprehensive records keeping and more formal assessment of members’ qualifications for interior attacks, as well as improved operational guidelines. Aggressive interior operations such as fire attacks and primary searches require firefighters to enter a hazardous environment, dramatically increasing exposure to potential adverse fire events such as flashover, smoke, explosion or backdraft, along with a variety of other hazards. Such operations pose the most significant risk to firefighters in fire ground operations.

The issue of appropriate training levels is considered along with the obligation to ensure that workers are properly trained for their duties and supervised while performing them. The goal, therefore, should always be to maximize training for all firefighters, and to limit their fire ground operations to those tasks for which they have been properly trained. To accomplish this, the Department should ensure that all firefighter activities are always supervised by a suitably trained fire officer. As with firefighters, fire officers must adhere to the limits of their actual training.

1 The records may, indeed, be available, though the method of storage and paper-based system in use would make that difficult to ascertain easily.


The report also analyzes the Department’s existing minimum training program in the context of the requirements established under the Fire Services Act (B.C.), and against NFPA2 1001 Firefighter I and II criteria and the BC Basic Fire Fighting Program. It also examines Live Fire Level I, II and III training requirements, which are critical training components for any department which conducts offensive interior operations.

Legal Structure Armstrong – Spallumcheen Fire Service Bylaw Review The City and Township have agreed jointly to provide a number of services to their respective residents. One of the services that is shared is the fire department.3 This shared structure creates some conceptual challenges when considering the fire service establishment and operational bylaws. Rather than a single bylaw creating the Department, there actually are two – in essence, the Department has been established twice, though the description of it varies somewhat between the two sets of bylaws. The relevant Township bylaw is Bylaw No. 11174; the closest equivalent bylaw for the City is Bylaw No. 929.5 Each will be considered in turn along with any relevant amendments. The primary focus will be on the issues related to the establishment and operation of the Department, and the authorities granted to it. Issues related to the adoption of the National Building Code, the National Fire Code, open air burning restrictions and similar matters will not be examined in detail. In conducting this review, we are not, and should not be construed as, providing legal advice. Any issues noted should be reviewed by the Township and the City with their respective legal counsel. It is important for the bylaw structure under which the Department operates to be designed to give it the necessary operational authority and powers to respond to and manage emergency incidents. Fire departments and their members do not have any inherent or generally recognized powers.6 Rather, they derive their authority from their establishment and operational

2 National Fire Protection Association. 3 Based on the 1984 cost sharing agreement, other shared services include the operation of the cemetery, the sanitary landfill, civic buildings and parks and recreation commission. Memorandum of Agreement between The City of Armstrong and the Township of Spallumcheen, [undated – 1984], s. 1. 4 Township of Spallumcheen Fire Department and Fire Prevention By-law No. 1117, 1991, adopted 18 November 1991 (as amended). 5 City of Armstrong Fire Prevention By-Law Number 929, 1986, adopted 24 February 1986 (as amended). 6 Fire chiefs of municipal departments have certain statutory powers arising from their designation as “Local Assistants to the Fire Commissioner” under the Fire Services Act (B.C.), but these powers are not of themselves sufficient to cover a department’s operations.


criteria bylaws. If they are based in a municipality, the municipal government has the authority to establish and operate a fire service under the Community Charter (B.C.) (the “Charter). If the local fire department is in an unorganized area, it will have been established as a local service by the relevant regional district, under the terms of the Local Government Act (B.C.) (the “LGA”), in response to requests by (or with the agreement of) taxpayers in the fire service area.7 Powers which may be granted to a fire department by its local authority include those contained in the Fire Services Act (B.C.) (and, in particular, in section 25 of that act), as well as powers enumerated in the Charter and the LGA. In each case, the powers and authorities granted to the fire chiefs, officers and firefighters are limited to the jurisdictional authority of the entity creating the department. In the case of a municipal department, this typically means the boundaries of the municipality.8 In situations where a department operates outside of its usual jurisdiction, consideration should be given to where its authority comes from and any limitations that may exist. It is critical therefore, that the bylaw structure clearly empowers the Department to carry out its responses to emergency incidents and to control the scene at such incidents. It is also important periodically to update the bylaw structure, as statutory references grow stale with time as the underlying regulatory framework is amended or updated (as has occurred for municipal and regional district governments, with the advent of the Charter and LGA). In the case of the Township and the City, we recommend that the existing bylaw structure be revised and materially updated. At the same time, the two municipalities should more thoroughly address the shared nature of the service, preferably by creating a “joint municipal service” as contemplated by section 14 of the Charter. Our detailed comments on the existing bylaws are set out below. Township Bylaw No. 1117 and amendments Under Bylaw No. 1117 (as amended), the Township authorized the establishment of the Department and granted it various operational authorities and responsibilities.

7 This is a generalization, as the Local Government Act (B.C.) has changed over time and the “local service” terminology derives from amendments made in the 1990s. The general concept is still applicable however: Regional District fire departments are only created where local taxpayers have requested or consented to the establishment of such service. Only those taxpayers enjoying the service pay taxes to support it. The same general concept applies to those services which are still operated by local Improvement Districts. 8 A municipality can define the fire service area to a region that is less than the entire municipality – to exclude, for example, Crown lands that may exist within municipal borders, or other undeveloped lands – if it so chooses.


One of the issues with this bylaw is its failure properly to define terms, and then consistently use them in the various provisions. Thus, the definition of the term “Department” is as follows:

“Department” means the Township of Spallumcheen Fire Department”. The term “Fire Chief”, however, then fails to use the defined term:

“Fire Chief” means the person duly appointed to serve as the head of the fire department, or his lawful deputy or any person duly appointed to act in his absence. [emphasis added]

The issue is further compounded in sections 1 – 3 of Part 2 of Bylaw No. 1117, where the Department itself is established, its constitutional “framework” indicated and its members granted indemnification protection (in each case, emphasis added):

1. The Municipal Fire Department is hereby established and will be known as the Armstrong/Spallumcheen Fire Department.

2. The Township of Spallumcheen Fire Department shall be guided in all matters by their [sic] constitution. Such constitution may be amended from time to time and shall require the approval of Council.

3. The fire chief and all members of the fire department shall be included in the Township of Spallumcheen’s general indemnification bylaw.9

The bylaw, therefore, uses four different terms to refer to the Department: “Department”, “fire department”, “Municipal Fire Department” and “Township of Spallumcheen Fire Department”. Ironically, the original form of this bylaw passed in 1991 did not use the current name of the Department – the Armstrong/Spallumcheen Volunteer Fire Department.10 This lack of consistency is both confusing and unnecessary. It should be reviewed and revised and a single defined term applied to the “Department” throughout the bylaw. We also would recommend that the Township review the establishment language. The Department is being jointly operated by the Township and the City: the bylaw should expressly recognize that situation and clarify that the two municipal authorities together will determine how the Department is to be operated, regulated and empowered. In that regard, the two municipalities can structure the arrangement as an intermunicipal service under section 14 of

9 Based on the approach taken, which is to capitalize defined terms set out in Part 1, section 1, the term “fire chief” also should have been capitalized. 10 That is the name which also is given to the Department in its “constitution” as amended in 1987: Amended Constitution of the Armstrong-Spallumcheen Volunteer Fire Department (1987), s. 1. Amendments passed to Bylaw No. 1117, however, do begin to refer to the Department using this name.


the Charter, or as one municipality providing the service to the other under section 13 of the Charter. In addition, care should be taken to ensure that all rights, responsibilities, authorities and administrative requirements are consistent between the two sets of bylaws. Jurisdiction and Responsibility of the Department The Department’s operational responsibilities are set out in section 4 of Part 1 of the Bylaw, as amended by Bylaw No. 133711 and Bylaw No. 1815.12 As revised, the Department’s jurisdiction and its authorized activities and responses are stipulated as follows:

a. To administer this By-law and the Fire Services Act; and National Fire Code and the National Building Code of Canada and section 6.3 “Chimneys and Venting Equipment”, Section 921 [sic],13 “Chimneys and Flues” and Section 9.22 “Fireplaces” of the National Building Code.14

b. To control the use of buildings, installation of equipment moved into buildings in connection with their use and the maintenance of satisfactory conditions, for occupancy, escape and firefighting.

c. To carry out all fire protection activities and such other activities as Council directs.

d. To provide i. Fire suppression and prevention ii. Rescue operations iii. Mutual aid to fire services including Ministry of Forests iv. Responses to hazardous materials incidents, and v. Public services.

e. The limits of the jurisdiction of the Fire Chief and the Officers and Members of the Fire Department will extend to the areas and boundaries of the City of Armstrong and the Corporation of the Township of Spallumcheen, and no part of the fire apparatus may be used beyond the limits of the jurisdiction without:

i. the express authorization of a written contract or agreement providing for the supply of firefighting and assistance response services outside the established boundaries, or

11 Township of Spallumcheen Fire Department and Fire Prevention Amendment Bylaw No. 1337, 1994 (adopted 31 November 1994). This amendment added subsections (d) and (e) to Part 2, section 4 of Bylaw No. 1117. Subsection (e) added yet another variant of the term used to refer to the Department. 12 Township of Spallumcheen Fire Department and Fire Prevention Amendment Bylaw 1815, 2011 (adopted 21 November 2011). This amendment added subsection (f) to Part 2, section 4 of Bylaw No. 1117. This revision added yet another variant of the term used to refer to the Department. 13 This should be section “9.21” not “921”. 14 In any update of the relevant bylaws, the Township and City likely should adopt the B.C. Fire Code and B.C. Building Code, rather than the corresponding National codes.


ii. the approval of Council. f. The Armstrong Spallumcheen Fire Department is authorized to undertake and

carry out the use of Jaws of Life extrication services as follows: i. within the fire protection area funded through the fire department budget,

and ii. outside the fire protection area when authorized to do so by the provincial

authority, providing there is a mechanism for cost recovery available.

There are several issues to be considered with respect to these provisions. First, responses in support of Wildfire Management Branch (“WMB”), which operates under the control of the Ministry of Forests, Lands and Natural Resource Operations,15 no longer take place under an agreement.16 Rather, the WMB has issued an operational guideline which specifies its approach regarding responses to wildfires, or wildland – urban interface fires, by local fire departments. This operational guideline covers both responses within a department’s own jurisdiction, and extra-jurisdictional support provided to WMB. The language regarding how the Department may support WMB’s operations (or obtain support from WMB if necessary, within its own jurisdiction) should be reviewed. As a related matter, the Township and City also should review the existing policy which authorizes the Department to respond to incidents which are proximate to its jurisdiction and which, if not addressed, may threaten either property or lives within its operational boundaries.17 First, the language in the existing policy should be tightened up. It speaks of risks arising from “a fire on any Township boundary”, when it really intends to deal with matters outside of the boundary. Second, the question of the Department’s authority to operate in the Regional District also needs to be clarified. This issue arises both in connection with providing support to WMB or responding to events which are outside of the Department’s ordinary fire protection zone. In both cases, the Township and City also need to ensure that there is both clear authority and a clear grant or source of powers. The authority to respond can come from the City and Township; the grant of powers, however, is a more complex issue. With regard to the WMB’s operational guideline, the Township and City should review the guideline and ensure that they are comfortable that it confers authority from the WMB to the Department when carrying out such an extra-jurisdictional response.

15 As contemplated by subsection 4(d)(iii). 16 WMB replaced its separate agreements with local governments with a single operational guideline in about 2001. 17 City of Armstrong, “Armstrong/Spallumcheen Fire Department Response – Interborder Lands,” Policy 4-400-5 (11 October 2011). It is assumed that comparable authorization has been granted by the Township. If a comparable policy does not exist, one should be created – or, the power should be included in a revised establishment and operational bylaw for the Department.


For other Department responses out of jurisdiction, other than those undertaken with Provincial Emergency Program (“PEP”) authority,18 there should be an agreement with the Regional District of North Okanagan (“RDNO”) granting permission for such operations. From the Department’s perspective, this agreement should be permissive, not mandatory – in other words, the Department may respond if it determines that the incident poses a threat or a potential threat to its jurisdiction. The agreement should expressly authorize the Department to exercise all of the powers it possesses within the Township and City in relation to responding to and managing such an incident. Other authorized responses that the Township and City may wish to consider include operations in support of other emergency services (e.g., at the request of the RCMP or B.C. Ambulance) and operations or responses under a provincial or local declaration of emergency under the Emergency Program Act (B.C.). Given that there are two Councils involved, it may also be useful, if the Department is seeking extra-jurisdictional authorization for an event not specifically covered by the bylaw, to consider whether the power to make such a decision could be delegated to specific individuals within the respective Councils. Those individuals should have the right to make a decision, or to require that the issue be elevated for consideration by each of their respective councils. Operational Powers and Authority The specification of the Department’s operational powers and authority is a critical aspect of the bylaw structure. To ensure that a fire department has the powers it requires to manage emergency incidents, it is important periodically to review the authority granted against a department’s responsibilities. In the case of Bylaw No. 1117, some updating is in order. First, the term “incident” is very restrictively defined:

“Incident” means a fire or situation where a fire or explosion is imminent. Given the mandate of the Department – which extends to motor vehicle incident (“MVI”) extrications, some FMR services19, rescues and hazmat responses – this definition of an incident is overly narrow. It is preferable to grant the Department wide latitude to control the 18 When operating under a task number from Emergency Management BC / PEP, the Department is conferred operational authority under the Emergency Program Act (B.C.). The “Jaws of Life” provision in subsection 4(f) contemplates extra-jurisdictional responses under PEP authority. 19 These calls are at the request of the BC Ambulance Service (the “BCAS”); however it is not clear whether this is within the mandate of the Department. That issue also should be reviewed in connection with revising the Department’s operational authorities.


scene of an emergency incident to which it has responded. The Township and City should consider amending their respective bylaws to include a broad definition of an incident. By way of example, the comparable language used in the “Operational Criteria” bylaw governing the operation of the Columbia Shuswap Regional District’s fire departments reads as follows:20

“Incident” means an event or situation to which a Fire Department has responded or would normally respond, whether alone, or in conjunction with other fire departments or emergency services.”

The powers of the Department (and its Chief and officers) are found in several places in the Bylaw No. 1117, as summarized below: Section Summary of Power Part 2 7(1) The Fire Chief is authorized to take all “proper measures for the prevention and control and

extinguishment of fires and for the protection of life and property and may enforce all municipal by-laws respecting fire prevention and exercise the powers and duties imposed upon him by the Fire Services Act”.

7(5) The Fire Chief or incident commander is given the power to cause the demolition of any building or part of a building necessary to prevent the spread of fire or to prevent damage to person or property or loss of life.

7(7) The Department is authorized to enter, pass through or over buildings or property “adjacent to an incident”, to gain access to an incident or to protect any person or property.

7(10) The Fire Chief or incident commander may establish and enforce a perimeter around an “incident”.

Part 4 3 The Local Assistant to the Fire Commissioner may order the removal from any lot or

premises any paper, rubbish or other combustible material which poses a fire hazard. 20 The “authority having jurisdiction”21 shall inspect “as often as may be necessary, all

buildings and premises except for the interior of private dwellings” for fire prevention purposes.

21 The “authority having jurisdiction” is to provide for the administration and enforcement of the Fire Services Act (B.C.), the National Fire Code and specified provisions of the National Building Code.

20 Columbia Shuswap Regional District, “Fire Services Operational Criteria Bylaw No. 5587” (2011), section 1(k). 21 Pursuant to section 6(1)(a) of the Fire Services Act (B.C.), the Fire Chief in a municipality is automatically designated as the Local Assistant to the Fire Commissioner (“LAFC”). A fire chief may delegate these powers to another person, provided that the delegation is in writing. The term “authority having jurisdiction” is defined in Bylaw No. 1117 as being the LAFC or those persons to whom the Fire Chief has delegated the powers to act as an LAFC.


As noted above, the Department responds to a wide variety of emergencies. The powers should be broadened to ensure that it is able to operate at any incident to which it has been called. By broadening the definition of the term “incident”, and stipulating that its powers relate to an “incident”, the necessary authority will then exist. With respect to section Part 2, section 7(7), in addition to passing “through or over” other properties or buildings, the Department should be able to station on those properties as required (the purpose behind the grant of this power is to prevent any technical concerns over trespass). In addition, the word “adjacent” may be too narrow – rather, it should provide the right in relation to any properties or buildings proximate to the incident, as may be determined necessary by the Fire Chief or incident commander. The power also should expressly include overhaul, clean up and any subsequent investigation of the incident. The Township and the City may wish to consider including some more general language in the “powers” section which permits the Department to take such other actions at an incident as may be considered necessary to ensure the safety of Department members, other emergency responders and the public, and to prevent or reduce damage to property. Section 20 of Part 4 addresses fire inspections. The Township and City should consider expressly cross-referencing to section 26 of the Fire Services Act (B.C.), which creates the obligation to implement a regular system of inspections of “hotels and public buildings”.22 The Fire Chief expressly should be empowered to establish a schedule for regular inspections based on the risk posed by a property (as is implicitly done in the existing Bylaw No. 1117). The Township and City should also consider whether to implement a charge for conducting these inspections. The approach in other jurisdictions varies. Many conduct the initial inspection free of charge, but charge for a re-inspection if one is required because of a deficiency noted in the original inspection.23 Other jurisdictions have moved to charging for both the initial and any re-inspections. A further issue to be considered is whether the Township and City should implement a system of self-inspection for low-risk public buildings. Other jurisdictions have introduced such a system, and, in some cases, have specifically authorized the fire department to use a self-inspection system in the relevant bylaw.24 Typically, the Department would then conduct 22 The term “public buildings” is broadly defined as including “a factory, a warehouse, store, mill, school, hospital, theatre, public hall, office building and any building other than a private dwelling house.” 23 In some cases, the first re-inspection may also be free of charge. 24 A good example of this system is operated by the Burnaby Fire Department, which has utilized a self-inspection system for low risk properties for about a decade. See sections 21 and 22 of City of Burnaby, Burnaby Fire Services Bylaw, 2004 (consolidation) available at: http://www.burnaby.ca/Assets/city+services/Fire+Department/fire+prevention/Building+Maintenance/Burnaby+Fire+Services+Bylaw+2004/Fire+Services+Bylaw+2004.pdf.


random audits of a number of those self-inspected properties. Properly managed, a self-inspection system will allow the Department to concentrate its resources on higher risk properties and potentially reduce overall costs while still appropriately managing risks.

We note that there is a policy for recovering costs for fire suppression activities where fires have been caused “in flagrant disregard to public safety”.25 The conditions that give rise to a potential claim for cost recovery are set out in section 2.2 of the policy, which reads as follows:

2.2 Costs shall only be applied to those parties in cases where the Fire has been in flagrant disregard to public safety by:

a) Burning during a prohibited period during a high risk time and without the

requirements of the Fire Prevention Bylaw of the resident Municipality. High risk time is defined as the period outside of that allowable for burning as stated in the Fire Prevention Bylaw of the applicable municipality and during a camp fire ban or dry weather.

b) Burning excessive quantities of prescribed material. c) Occurring on multiple occasions (2 callouts in a 12 month period).

The first two conditions relate to acts which are themselves evidence of deliberate bad behaviour and/or bad judgment. It is not clear, however, if the third condition (having two callouts for fire response in any 12 month period), is intended to modify the preceding two paragraphs, or is a standalone provision. If the latter, it seems somewhat inappropriate to hold a resident liable for fire protection response in circumstances where there is no evidence that he or she was responsible for the fire. It also is onerous on a volunteer chief to impose the responsibility for determining whether such costs should be sought. It might be preferable for the decision to rest with an appropriate senior staff member of the City or Township (as appropriate), based on a report from the Fire Chief (or designate) as to the circumstances of a particular fire.

A further issue that could be added is a charge for responding to false alarms. Again, many municipalities are now levying a charge when a Department responds to more than one false alarm in any year.

Administrative Matters

The provisions relating to the administration of the Department similarly could stand refreshing. Bylaw No. 1117 expressly refers to the “constitution” of the Department in section 2 of Part 2, governing the operation of the Department.26 Among other things, this constitution provides that

25 [City of Armstrong], “Armstrong Spallumcheen Joint Programs: Fire Department Cost Recovery Policy”, Policy 4-400-4 (14 January 2008). 26 Section 2 of Part 2 is cited above.


the Department members will elect their fire chief and officers. This approach, which was common in the 1970s and 1980s, has increasingly been dropped as local governments have reviewed and updated their bylaw and operational structures for their fire departments. As the regulatory structure within which fire departments operate has grown increasingly complex, and liability risks increased, local governments have moved to controlling and overseeing the appointment of the fire chief. Most volunteer or paid on call officer appointments are then typically delegated to the fire chief, subject to the establishment of formal training and proficiency requirements. We would recommend that the Township and City engage with their members and review the processes by which the Chief and officer appointments are made. See also the discussion of the need for formal training and proficiency requirements for various officer positions in the training section of this report.

We did not review the Constitution in detail (beyond noting that it is not recognized by the City’s bylaw, as discussed below, and the issue of electing officers noted above). In general, the trend in the province is to move away from having separate fire societies responsible for any “operational” or substantive aspects of fire service delivery. The risks for providing such services are simply too great. Rather, they increasingly are focussed on issues related to enhancing the experience of members – the critical “social” side of a volunteer service – and undertaking relationship building with the communities served by the Department. As the Department and the two municipalities review the underlying establishment and operational structure, they should, in consultation with the Department’s membership, revisit the formal role of any existing society.

As a related issue, unless the system is revised, care should be taken in describing how the Fire Chief is appointed when the Township and City enter into agreements with third parties. For example, the Fire Service Agreement with the Splatsin First Nations, dated 20 December 2011, defines the “Fire Chief” as being the individual “appointed by the Councils of the Township of Spallumcheen and City of Armstrong as Chief of the Fire Department”. Also in the administrative section, there should be a clear obligation of the Fire Chief to establish appropriate operational guidelines for the Department in relation to its emergency responses. WorkSafe BC requires that there be written directions for employees in relation to their principal occupations and tasks. As such, the Fire Chief should be required to ensure that these written instructions exist for matters such as: fire suppression activities (including both offensive interior actions and defensive actions); training and proficiency requirements for members; wildfire or wildland – urban interface response; vehicle fires; MVI responses generally; the range of first medical responses; support activities on behalf of other emergency services; rescue activities; and any other responses reasonably anticipated by the Department. The Fire Chief also should expressly be made responsible for ensuring that the Department operates a joint committee and occupational health and safety program in conformity with the requirements of the Workers Compensation Act (B.C.) (the “WCA”) and related regulations. While in practice the Fire Chief likely will delegate responsibility for this matter, he or she should


be responsible for ensuring that all applicable WorkSafe BC requirements are being met by the Department. City Bylaw No. 929 and amendments In general, the comments relating to the Township Bylaw No. 1117 also apply to City Bylaw No. 929. The powers of the Department are identically defined as those described in relation to Bylaw No. 1117 above.27 As such, the Department’s authority is consistent across its jurisdiction – and the comments made above in relation to revising its powers apply also to Bylaw No. 929. Unlike the Township’s bylaw, Bylaw No. 929 does not formally establish the Department; it also does not expressly address administration of the Department. In addition, it refers to the Department as the “Armstrong Fire Department”28 the “Fire Department”29 or the “Armstrong Spallumcheen Fire Department”.30 Unlike Bylaw No. 1117, the “Fire Chief” is defined as being the person “duly appointed by a resolution of the Council of the City”. There is no express reference to the “constitution” of the Department,31 and it is not clear from Bylaw No. 929 what authority that document is supposed to have. As noted above, the question of what role should be played by any separate fire society should be formally reviewed with the Department’s membership. Recommendation 1: The Township and the City should review and revise the

underlying bylaw structure which establishes and empowers the Department to operate, based on the recommendations set forth above. In particular, the revised bylaw should:

(a) expressly recognize the joint nature of the service which has

been created (e.g., by creating a joint municipal service under section 14 of the Charter , or a joint commission with sufficient delegated powers);

27 As with Bylaw No. 1117, Bylaw No. 929 was amended to add certain operational powers in 1994 and again in 2012: The City of Armstrong Fire Prevention Amendment By-law Number 1193, 1994; and City of Armstrong Fire Prevention Amendment Bylaw No. 1712, 2012. The two municipalities have coordinated the amendments to their respective fire prevention bylaws as, for example, open air burning or other regulations, have been changed or introduced. 28 See the definition of “Fire Chief” in section 1.4 of Bylaw No. 929. 29 See section 2 of Bylaw No. 1193 (1994). 30 See section 1 of Bylaw No. 1712 (2012). 31 Amended Constitution of the Armstrong-Spallumcheen Volunteer Fire Department (1987).


(b) use consistent terminology when referring to the Department;

(c) update and make consistent the manner in which the Fire Chief is appointed;

(d) define the Fire Chief’s role and principal responsibilities in managing and overseeing the Department;

(e) update certain critical definitions, such as the term “incident”, to ensure that the Department is expressly empowered to act at all incidents to which it is required to respond or has responded (including requests for assistance from the BCAS);

(f) update the description of the Department’s powers and authority;

(g) review and update the terms under which the Department is authorized to operate outside of its ordinary jurisdiction, including reviewing the appropriate WMB operational guideline and entering into a permissive agreement with the RDNO that enable the Department to operate outside of its ordinary fire service area;

(h) review the relationship between any existing fire society and the Department and ensure that this role is properly reflected in the underlying bylaw structure (with such updates to the society’s constitution as may be necessary or appropriate to reflect any changes to the relationship); and

(i) review and update the language regarding the Department’s responsibility for conducting of fire inspections.

Recommendation 2: For administrative convenience and ease of review, when updating the bylaws, the Township and the City should consider separating the Department’s establishment, operational responsibilities and authority from the regulatory portions of the bylaw such as open air burning.


Administration The Department is administered by the Fire Chief who is part time and a full time Deputy Chief whose primary function is fire inspections and prevention32. This report will note in a number of sections that there is at present insufficient staff time to complete all necessary functions. These include, but are not limited to, completion of all required records as well as maintenance of fire apparatus as well as ‘small equipment’ such as masks, chain saws, ladders, fans, generators and others. There is also a requirement to develop and regularly update pre-plans for industrial and commercial properties as well as buildings such as schools. The section on training also addresses the need for more complete training of recruit fire fighters as well as incident commanders and apparatus operators. In addition the Department will require a second fire hall to be planned and implemented to service the south part of Spallumcheen to meet the coverage requirements of the Fire Underwriters and this will require a considerable commitment for this purpose in addition to recruitment and training of a second company of volunteer fire fighters. The Department will require at a minimum one additional full time member to provide greater oversight of training, to manage the development of pre-plans and to assist with providing greater day-to-day maintenance of apparatus. One option would be to redefine the position of Fire Chief to be full time; a second option would be to hire a second full time member at the level of the Deputy Chief (Inspections). Recommendation 3: That the Department provide an additional full time member to

provide additional management support for training, pre-planning and regular maintenance.

Occupational Health and Safety The statutory basis for occupational health and safety programs is found in the WCA and the Occupational Health and Safety Regulation, BC Reg 296/97 (the “Regulations”), as well as in other regulations and the policies of WorkSafe BC. The legislative framework is complex, and this analysis does not purport to provide a comprehensive review of all matters that must be considered; rather it provides a road map to assist the Department in reviewing and updating the operation of its joint committee (the “Joint Committee”) and underlying occupational health and safety (“OH&S”) program and policies. The City, Township and the Department should review the existing program against the

32 The job description notes the general purpose as: Performs administrative and technical work related to fire inspection and prevention.


requirements of the WCA and regulations made thereunder and obtain specialist advice if necessary. The Department’s OH&S policies and programs are found in three principal documents or sets of documents:

the Armstrong & Spallumcheen Fire Department Health and Safety Program (the “OH&S Program”);

the Armstrong & Spallumcheen Fire Department Respiratory Protection Program (the “Respiratory Program”; and

various of the Department’s operational guidelines, which support or add to each of the two preceding documents.

Both the OH&S Program and the Respiratory Program were last updated in November 2009, though there may have been reviews of them conducted subsequently that have not been expressly recorded. Formal OH&S Program Requirements The following discussion sets out a general overview of the requirements for an OH&S program, against which the existing program of the Department will be considered. The starting point for any consideration of OH&S is section 115 of part 3 of the WCA, which makes employers responsible, among other things, for:

ensuring the “health and safety of all workers working for that employer”, complying with the WCA and related regulations and orders, and establishing OH&S policies and programs in accordance with the WCA regulations.

Section 3.3(1) of Part 3 of the Regulations requires an employer to initiate and maintain an OH&S program when it has a workforce of more than 50 workers. This program must apply to the whole of the employer’s operations.33 The program must be designed to prevent injuries and occupational diseases, and is required to include:34

(a) a statement of the employer's aims and the responsibilities of the employer, supervisors and workers;

33 Section 3.1(2) of Part 3 of the Regulations. 34 Section 3.3 of Part 3 of the Regulations.


(b) provision for the regular inspection of premises, equipment, work methods and work practices, at appropriate intervals, to ensure that prompt action is undertaken to correct any hazardous conditions found;

(c) appropriate written instructions, available for reference by all workers, to supplement WorkSafe BC’s Occupational Health and Safety Regulation;

(d) provision for holding periodic management meetings for the purpose of reviewing health and safety activities and incident trends, and for the determination of necessary courses of action;

(e) provision for the prompt investigation of incidents to determine the action necessary to prevent their recurrence;35

(f) provision for the maintenance of records and statistics, including reports of inspections and incident investigations, with provision for making this information available to the joint committee or worker health and safety representative, as applicable and, upon request, to an officer, the union representing the workers at the workplace or, if there is no union, the workers at the workplace; and

(g) provision by the employer for the instruction and supervision of workers in the safe performance of their work.

Joint Health and Safety Committee As part of an OH&S program, employers are required to establish joint committees (or appoint worker safety representatives) to review and manage safety issues in the workplace. Pursuant to section 31.3 of the Part 31 of the Regulations, in a situation where an employer is required to “establish a joint committee or [appoint a] worker health and safety representative, then a fire department … operated by the employer must have a separate joint committee or worker safety representative, as applicable”. The provisions covering the establishment of joint committees are found in sections 125 – 129 and section 139 of the WCA. Section 125 requires that a separate committee be established for each workplace where 20 or more workers of the employer are regularly employed, while section 139 requires that a worker safety representative be appointed in each workplace where there are from 10 to 19 employees. In relation to the establishment of a joint committee, the WCA set out detailed requirements regarding (among other things):

35 Section 3.4 of Part 3 of the Regulations stipulates the required contents of any incident investigation report that is required to be completed.


membership on the joint committee and appointment of co-chairs;36 means of selecting the worker and employer representatives;37 the duties and functions of a joint committee;38 the requirement for monthly meetings;39 certain administrative requirements (such as the keeping and posting of minutes of the

joint committee meetings);40 the obligation of an employer to respond to recommendations from the joint committee;41

and the employer’s obligation to provide administrative support to the joint committee.42

Department’s Joint Committee It is useful to first consider the Department’s Joint Committee, and then examine the OH&S program itself (since the Joint Committee is largely responsible for overseeing the operation of the OH&S Program). Section 10 of the Department’s OH&S Program contains provision for the establishment and operation of the Department’s Joint Committee. In general, the policy is reasonably well documented. The following issues were noted: Section 10.01. This section should be revised to note that the Joint Committee will have at least four members, and that at least half of those members will be employee representatives (as required by sections 127(a) – (c) of the WCA). It would be useful for this section also to cross-refer the appropriate provisions of the WCA, to enable the Joint Committee periodically to review its operation and mandate against the statutory requirements. Section 10.03. This section should be revised to reflect the requirement that, under section 127(d) of the WCA, one of the firefighter representatives must be nominated as co-chair of the committee, along with the Department Safety Officer. Section 10.04. The reference to “each Fire Hall” should be amended to “the Fire Hall” (since there currently is only one). The specific requirement for posting of minutes is that the previous 36 Section 127 of the WCA. Minimum membership on the joint committee is four: two employer representatives and two worker representatives. One employer representative and one worker representative must act as co-chairs. 37 Section 128 (worker representatives) and section 129 (employer representatives) of the WCA. As there is no union involved, selection of worker representatives must be by secret ballot – see section 128(1)(b). 38 Section 130 of the WCA. 39 Section 131(2) of the WCA. 40 See sections 137(1) and 138 of the WCA. 41 Section 133 of the WCA. 42 Section 136 of the WCA.


three committee meetings must, as a minimum, be posted, along with the names of the joint committee members and copies of any WorkSafe BC orders made in relation to the joint committee (see section 138 of the WCA). The language in this section should be revised accordingly. Section 10.05. Section 10.05 sets out the terms of reference for the Department’s Joint Committee. While in substance the terms of reference cover most of the areas identified in the WCA, it would be useful for the Joint Committee to review the requirements set out in section 130 of that statute and update the terms of reference accordingly. It is safer to track the statutory language in defining the Joint Committee’s specific terms of reference. In relation to the calling of special meetings, either of the “co-chairs” should be entitled to call a Joint Committee meeting. Under the heading “Agendas and Minutes”, section (b) should be revised to note that meeting minutes will be posted as provided in section 10.04 of the OH&S Program. The copies of Joint Committee minutes received suggest that formal meetings are not being held on a monthly basis (a requirement under the WCA), or if they are, that minutes are not being kept.43 We also would recommend that the form of the minutes be revised to record attendance at the meeting, an agenda and the names of the co-chairs and other participants. Department’s OH&S Program The Department’s OH&S Program is generally well documented. It is clear that its officers and members have invested both time and effort in preparing the program and underlying materials; their efforts compare well to that of other comparable departments we have reviewed. There are, however, some areas where improvements can be made, both in terms of the specific language used, and in some of the general approach to the structure of the document. The specific, detailed comments are set out in Appendix 3. The more general concepts or issues are identified below. The only material omission that was noted is the lack of a section detailing the Department’s Workplace Hazardous Materials Information System (“WHMIS”). Typically, a fire department’s OH&S policy will cover this system. There is an OG which deals with WHMIS matters, but a section on WHMIS would not be out of place in the OH&S Program. Some suggested language is included for consideration in Appendix 3.

43 We received eight documents covering the period February 2011 – July 2013. These documents were in the form of an “Occupational Health and Safety Meetings – Action and Follow-up Report” rather than meeting minutes per se.


One of the growing challenges for any volunteer or composite department is managing its regulatory obligations. OH&S programs present one of those challenges. As noted, the statutory and regulatory structure is complicated; it is relatively easy to end up offside a technical requirement which then only comes to light in the event that a bad situation has arisen and a formal, potentially adverse review is being undertaken. As such, to the extent possible, it is recommended that the policy cross-refer to both the underlying statutory or regulatory requirements and to any other policies or operational guidelines which further explain the procedures to be followed. This cross-referencing should be done as appropriate on a section by section basis. For example, the provision on the use of Self-Contained Breathing Apparatus (“SCBA”) (found in section 2 of the OH&S Program) should include cross-references to:

WCA Regulations, sections 8.32 – 8.45 and 31.19 – 31.26; Armstrong & Spallumcheen Fire Department Respiratory Program; and Armstrong & Spallumcheen Fire Department OGs 1.02, 1.03.01, 1.07.01, and 2.07.

We recognize that this cross-referencing, initially at least, can be something of a daunting task. However, under part 12 of the OH&S Program, the Department is required to review its program annually. By creating appropriate cross-references, it will enable the Joint Committee to conduct the review more easily and thoroughly. It will allow the committee more readily to identify any changes to the underlying statute or regulations, and to track changes from to the OH&S Program into the appropriate operational guidelines or other policies (and vice versa, where appropriate). Absent such cross-referencing, the committee must essentially “rediscover” all of the appropriate sections in both the WCA and the Regulations, which can be challenging.44 It must also track the policy against its collection of more specific operational guidelines, which also can be challenging. A record of the annual review of the OH&S Program also should be noted on the document itself, even if it did not lead to substantive (or any) changes. In terms of the language used, where the OH&S Program is reflecting specific statutory requirements (e.g., as in the obligation to conduct investigations, or the terms of reference for the Joint Committee), it is generally advisable to track the specific statutory language that creates the obligation. If that language is unclear (or difficult to follow) the program can then further explain, in practical terms, what is each affected individual is required to do. By closely tracking the statutory language, it make it easier to determine whether there have been any changes to the requirements in either the WCA or the Regulations, and ensures that the specific obligations properly reflect what WorkSafe BC requires.

44 In a similar vein, we would note that the Operational Guidelines – which do include cross-references – should be more specific when referring to either the WCA or Regulations. The relevant section references should be included to enable easier cross-checking for any changes to the underlying statutory requirements.


Recommendation 4: The Department’s policies on the establishment and operation of its Joint Committee be reviewed in light of the comments made above, and against the requirements in the WCA and be revised as required. In particular, one of the firefighters should be appointed as a co-chair of the Joint Committee, along with the Safety Officer and the terms of reference of the Joint Committee be reviewed against the requirements of section 130 of the WCA.

Recommendation: 5: The Department add a section addressing the implementation and

operation of its WHMIS program, in accordance with sections 5.3 – 5.19 of the Regulations made under the WCA.

Recommendation 6: The OH&S Program be updated to include specific cross-

references to applicable requirements under the WCA and Regulations (or applicable WorkSafe BC policies), and to other Department policies and specific operational guidelines.

Recommendation 7: The annual review of the OH&S Program, as required by Part 12,

be noted on the document, even if no substantive changes were made.

Recommendation 8: The language used in the OH&S Program should track the

statutory language, where it reflects a specific obligation or requirement in the WCA or Regulations. Additional explanatory text can be included where required or advisable.

Mutual Aid Agreements The City and Township have entered into two mutual aid arrangements in relation to the Department:

an agreement with the cities of Vernon and Enderby, the District of Coldstream and the NORD dated as of 13 July 2009 (the “Local Agreement”); and

an agreement with Columbia Shuswap Regional District (“CSRD”) dated as of 16 January 2009 (the “CSRD Agreement”).

Each of these agreements is reviewed below. Local Agreement The Local Agreement covers essentially all of the principal fire services within the NORD. In total, the arrangement covers operations by seven fire departments. Conceptually, this approach is to be applauded, as it provides a legal basis for rapid mutual aid responses


between each fire jurisdiction within the regional district, which reduces delay in the event of a major emergency and mitigates both operational and legal risk. The Local Agreement expires in 201445 and should be renewed and updated at that time. As noted in the discussion of the City and Township’s fire service bylaws, the powers of a fire department to operate at and manage an emergency incident are dependent on the powers granted in the bylaw structure that establishes and defines a department’s operations. When a fire department responds out of its ordinary jurisdiction, care should be taken to ensure that the mutual aid agreement clearly specifies the powers of a responding mutual aid department. Two basic approaches can be considered:

the parties can agree that responding departments have the same powers to operate at an emergency scene as they enjoy within their own jurisdiction; or

the responding department can be granted the same right to operate at the emergency scene as is enjoyed by the requesting department.

Ideally, each of the participating departments and local governments should review their respective, underlying grants of power and authority, and ensure that they are comparable in scope and extent. In this way, a responding department can be confident that actions it normally would take in its home jurisdiction can also be undertaken during a mutual aid response. In relation to incident scene management, the Local Agreement should be reviewed and updated. Under section 3, “Procedure”, it provides that the “Chief Fire Official of the Requesting Party” shall remain in charge and direct all Mutual Aid resources”, albeit in cooperation with the appropriate fire official from the responding party. The Local Agreement should specify that the BC Emergency Resource Management System (“BCERMS”) will be used in connection with managing mutual aid responses. In addition, there should be express consideration of circumstances where a mutual aid request has been made, but the responding party arrives on scene before the requesting party46 – or, given the nature of the assistance being provided, is required to operate on its own. The latter situation could arise in circumstances where the requesting party already is fully engaged on one incident when a second incident arises, for which mutual aid is requested.47 45 Although the Local Agreement is dated as of 13 July 2009, the date of the final signature on the document provided is 26 August 2009. Under section 2(a) “Standard Clauses and Terms”, the “last date of execution” is used to determine when the Local Agreement expires. 46 In which case, if control of the incident is to be transferred, a process for transferring command should be agreed. Section 3(c) “Procedure” and Section 6, “Control and Safety” should be reviewed in this context. 47 Thought also would need to be given, in such circumstances, to the exception to the indemnity contained in section 11(c). While the exception (which basically provides that if a responding party is acting on its own, it is fully liable for any damage claims) may still be considered appropriate, it still should be carefully reviewed.


The Local Agreement has a general provision calling for consultation on a “regular basis” between the participating fire chiefs.48 Ideally, however, the agreement should specify various areas in relation to which common operating procedures and processes are defined and agreed. For example, consideration should be given to having the Local Agreement expressly stipulate (among other things):

the minimum training level of personnel from responding departments; an agreed process for identifying the training levels of responding personnel; an agreed process for managing and tracking personnel on-scene; clarity around emergency scene communications; a regular review amongst the departments to ensure equipment interoperability

(including the equipment that is to be interoperable); a process for coordinating operational procedures between departments, to ensure more

effective and safer collaboration at a mutual aid event; a process by which any mutual aid responses are formally reviewed and documented to

identify best practices and address any challenges that may have arisen; and a requirement for regular, joint training sessions between the mutual aid partners.

Each participating fire department should be required to have standard operating guidelines which clearly lay out both the responsibilities of the department if it requests aid, and the processes for responding to and operating at, a mutual aid scene. These guidelines should be consistent between the participating departments – indeed, they could be developed as part of a joint process in the “Cooperation” section of the Local Agreement. In relation to damaged or destroyed equipment and apparatus, there is some inconsistency between section 10(b) “Cost” and section 12(b) “Insurance”. Section 10(b) essentially provides that the cost to repair or replace damaged “equipment” (which is not defined) is to be borne by the “Requesting Party”. Section 12(b), however, stipulates that if a loss of a Party’s “Emergency Resources” is “fully insured against”, the party suffering the loss (presumably) has to make a claim on its policy and to pay the insurance deductible. Consideration also should be given to the indemnity language in section 11, which entitles a responding party to claim for any “loss, costs or damages” arising from providing aid under the Local Agreement. Finally, as with any agreement, when the Local Agreement is renewed each provision should be carefully reviewed to ensure that it remains relevant and appropriate. There are some typographical errors which could also be corrected – for example:

in section 8, the phrase “not longer required” should read “no longer required”;

48 Section 5, “Cooperation”.


in section 11(a), the phrase “nor its elected official” should read “or its elected officials”; and

in section 16(a), the phrase “and do form party of” should read “and do not form part of”.

CSRD Agreement

The CSRD Agreement is geographically limited to certain areas within each party’s jurisdiction, as defined in a schedule. In essence, if the incident arises outside of the established boundaries (which are less than the full fire protection area of the respective departments), aid can neither be requested nor provided. Care should be taken to ensure that these areas are properly understood by both the Fraser Valley and City of Surrey fire dispatch centres to ensure that a mutual aid response is not accidentally triggered outside of these boundaries. The CSRD Agreement expired on 31 December 2013, and should be renewed (or extended). In terms of form, the CSRD Agreement does not consistently capitalize its defined terms, and in some places in the body of the agreement, uses capitalized terms which have not been defined.49 To ensure clarity and precision, a consistent approach to the use of defined terms should be adopted. As with the Local Agreement, the CSRD Agreement should be reviewed and updated to include more formal and prescribed processes for managing mutual aid responses, including formal grants of authority and power to the responding department, and agreed approaches to minimum training levels, incident command, joint training and the other matters identified in the preceding section. The discussion of the role to be played by the two dispatch centres should be reviewed and clarified. The CSRD Agreement should expressly identify the two centres and include a provision to ensure that the procedures being followed by both sets of dispatchers are consistent and in accordance with the limitations set out in the CSRD Agreement. In the indemnity provisions, the language in section 15 should be reviewed. This section provides that the requesting or receiving party will indemnify the responding party in relation to “any error, omission or negligent act on the part of the receiving party in providing the emergency services requested.” The receiving party is operating in its native jurisdiction: no services have actually been “requested” by the responding party. This language should be clarified in any renewal.

49 See sections 1(c) and (d); see also the use of the term “Volunteer Fire Department”


Standards of Service

NFPA 1221

One of the principal requirements for a fire department is to provide timely response to emergency fire, rescue and medical assist events where those are included in the mandate for the department. This is in addition to the non-emergency responses such as fire inspections, public education, pre-planning and other less visible activities where these are part of a fire department’s mandate. The former activities are the ones with the highest profile, and the ones with the largest degree of risk to residents, property owners and responding firefighters; for all of these, the NFPA 1221F

50F standard applies in terms of emergency call handling and dispatch.

A primary mandate of any fire department is to provide for a timely response to fire and medical emergencies, as well as hazardous materials, technical rescue and other public safety interventions. In the vast majority of these events, crews respond from a fire hall and travel some distance to the incident.

In every sense of the expression, fire, rescue and medical responses are ‘mission critical’ and it is useful to understand the series of steps that must take place between the call for assistance by a resident and the arrival on scene of a fire department crew. Each of the steps that will be described can, in most cases, be analyzed to understand the total time until arrival of firefighters using real-time data from existing systems51

F. Where this data is not available in a computer aided dispatch (“CAD”) system, it can be measured by direct observation.

Figure 1 that follows summarizes the processes from the point at which an incident occurs and a call for help is placed. This illustrates how the communication steps (the 9-1-1 process is shown in light blue/green, the fire dispatch is shown in orange) are gating items for the completion of response and arrival activities of the fire service (shown in red).

50 NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems, 2013 edition. 51 This data would be found in computer aided dispatch or records management systems; the Department has data suitable for analysis from the RMS.


Figure 1: Event Sequence for Emergency Call Handling, Response and Arrival

Each of these steps from the time the caller reaches the 9-1-1 centre, until the arrival of the fire apparatus at the scene is part of a sequence for which peer reviewed response time objectives have been identified. The standards of service for emergency communications in the fire service are described in NFPA 1221 as noted. This standard provides an analysis model for key steps involved with emergency call taking and dispatch and prescribes time milestones in which these should occur52

F. It should also be noted that the call management response time objectives in NFPA 1221 apply equally to the career, composite and volunteer fire services.

In summary, the expectation is that all emergency calls for service will be answered, the caller will be interrogated, the ‘call’ will be created on paper or in a computer aided dispatch system, and the tones and information will be sent to the responding firefighters within 60 seconds, 80% of the time.

The NFPA has developed an analysis of a standard fire situation that explains the need for a timely response. The graph shown in Figure 1 is from the NFPA53 standard and demonstrates the expected fire propagation curve, which indicates the point at which a fire is expected to spread beyond the room of origin. This likely spread of the fire can be expected to occur at or about 8 minutes from the point of ignition.

52 NFPA 1221 additionally defines a standard with regard to business continuity, security, power and other system redundancies, CAD system operation, etc. 53 The standard for the management of substantially career fire departments is NFPA 1710, and the standard for volunteer and composite fire departments is NFPA 1720. Although the NFPA identifies a different approach to arrival on scene with a certain number of fire firefighters, the essence of the fire propagation curve as shown in Figure 1 applies to all fires regardless of whether the department is career, composite or volunteer.


Figure 2: Fire Propagation Curve, Modeled from NFPA 1710

From this graph it can be seen that in the range of time from 7 to 9 minutes after ignition, a fire is expected to rapidly accelerate and the percentage of property destruction (shown on the Y axis) increases from approximately 30% to nearly 70%. At some point in this short period of time, the assumption is that the fire will spread beyond the room of origin.

The significant point is that each of the steps in the fire department’s response sequence, including 9-1-1 call processing, call assessment, dispatch, turnout and travel time should all occur prior to the time when a fire will extend beyond the room of origin, thereby creating a much higher risk to life and property. In this regard, the NFPA notes:

In Figure A.5.2.2.2.1, [Figure 2 above] the line represents a rate of fire propagation in an unsprinklered room, which combines temperature rise and time. It roughly corresponds to the percentage of property destruction. At approximately 10 minutes into the fire sequence, the hypothetical room of origin flashes over. Extension outside the room begins at this point.

Consequently, given that the progression of a structure fire to the point of flashover (i.e., the very rapid spreading of the fire due to superheating of room contents and other combustibles) generally occurs in less than 10 minutes, two of the most important elements in limiting fire spread are the quick arrival of sufficient numbers of personnel


and equipment to attack and extinguish the fire as close to the point of its origin as possible.54

The key element going forward is the requirement to manage all parts of the response equation as quickly as possible. This includes the strategic location of fire halls to provide the timeliest response to fires and other emergencies.

NFPA 1720

The City and Township operate a composite department, comprising both career and volunteer firefighters and officers. The majority of the members of the Department are, in fact, volunteers (or paid on call) members. Under the NFPA system, the applicable response standard is that set out in NFPA 1720, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. This standard, which defines the expected response from volunteer and composite departments, was revised in 2010.

In determining whether a fire department should be considered a career or volunteer department, the NFPA provides the following definitions:55

3.3.15 Fire Department. An organization providing rescue, fire suppression, emergency medical services, and related activities to the public.

3.3.15.1 Combination Fire Department. A fire department having emergency service personnel comprising less than 85 percent majority of either volunteer or career membership.

3.3.15.2 Volunteer Fire Department. A fire department having volunteer emergency service personnel comprising 85 percent or greater of its department membership.

By this definition the Department would be considered a volunteer fire department.

The NFPA 1720 standard does not have precise response objectives for turnout times as this will vary to a significant degree based on the travel and assembly time for volunteer firefighters travelling from their homes or places of business. The standard, however, does prescribe an objective to have a trained response crew of a certain size assembled at an emergency within a variable timeframe based on population density. This requirement is reproduced in Figure 3, below.56

54 NFPA 1710, 2010 edition, A.5.2.2.2.1 55 NPFA 1720, 2010 edition, page 5 56 These response standards were added to the 1720 standard in 2010; previous to that revision, the standard had been silent on such response time objectives.


Figure 3: NFPA 1720 response and staffing for Volunteer Fire Departments57

While not all NFPA fire service standards are mandatory in British Columbia, an increasing number of them are being adopted through legislation, regulation or order, through bylaw or policy of local government or by being imposed by outside agencies. WorkSafe BC has incorporated various NFPA standards into Part 31 of the Regulations and, as noted in the training section below, the Minister’s Order mandates NFPA standards for firefighter training. Finally, NFPA standards are frequently considered when issues of liability potentially arise from fire department operations. Since the standards are set by consensus of professionals in the field, and are both well-known and frequently applied by fire departments across North America, there is an increasing likelihood that material divergence from those standards will be raised as an issue if there is a claim against the Department for negligence or of an insufficient or inadequate response to an incident.

Operational Review

Review with Staff The consultants met with the Chief and Deputy as well as with the Volunteers. Both sets of interviews were very positive and provided a great deal of helpful information. It should be noted

57 NFPA 1720, 2010 edition, page 10.


that all members of the Department are to be commended for their commitment to the fire service and to their community. Communications In general the radio/dispatch communications system for paging and radio appears to be adequate however some dead zones are noted, particularly along Pleasant Valley Road, near the high school. The paging system is tested on a regular basis and if the dispatch link fails it is possible to use the telephone interconnect to send page tones and incident location information. Recommendation 9: That the Department should identify all areas where there is

insufficient radio coverage for paging or voice and provide additional equipment to eliminate these.

The dispatch provider58 utilizes CAD software that will support the use of mobile workstations in fire apparatus. The Department has purchased a licence for this for the new rescue vehicle. This type of electronic dispatch ticket is a best practice for the fire service as it provides response information on a computer screen including the address, the nearest cross street, the building type, the type of incident and other relevant information. Recommendation 10: That the Department utilize mobile workstations in each response

unit to provide an electronic ‘dispatch ticket’ with the incident address, a map view of the area, as well as pre-plan and hazard information.

At the present time the Department is utilizing a limited set of modules within the FDM record management system including properties and inspections as well as incidents and personnel but has no intention to procure additional modules. Members of the Department utilize computers in the fire hall however these are not all networked with the result that files are kept on local hard drives, and not easily shared. This would also raise concerns in terms of having files backed up to an off-site location on a regular basis. Recommendation 11: That the Department network its existing and future computers

and provide a regular, off-site backup for all data. The Department has the ability to connect to the dispatch provider (operated by the Fraser Valley Regional District) by use of a remote desktop to access their incident reports. Basic

58 The Fire Chief and Deputy each noted their high level of satisfaction with the level of service provided by the Fraser Valley Dispatch System.


information is supplemented to the incident report. The incident report however does not always identify the members of the department who attended the incident and this should be addressed. Recommendation 12: That the Department ensure that incident reports are completed

with all information including all fire fighters who attended. The fire hall lacks a standby generator and the only secondary power provided is with individual UPS units for each computer. These are sufficient for a short term but will not provide power continuity during a sustained outage and some type of generator should be provided. Recommendation 13: That the Department provide a backup generator for the fire hall. Hazards The Department has response plans for major industries in the fire protection area. These are in hard copy and carried on the apparatus. It is expected that in future these pre-plans will be managed in an electronic format and be viewable in the mobile workstation in the apparatus. Specific hazards include the railroad which has several transhipments daily. The contents of these trains is known in a general sense however there is no specific plan for a spill, leak or fire, an issue that should be addressed. There is not a complete inventory of the products carried through this area by rail but it does include various chemicals and propane as well as lumber products. Recommendation 14: That the Department develop a complete inventory of all industrial

hazards within its response area, including those carried by the railroads and develop response plans for each.

Volunteers At the present time there are 38 volunteer firefighters on the roster. Response in the day time during business hours is often 5 or 6 initially while in the evening and at night the response is often 12 or more. It was noted that there is a limited number of firefighters who also have the certification to operate the apparatus. This lack of driver training has led to occasions, particularly in the summer months, where there may be as few as one or two firefighters capable of driving and operating the apparatus. This must be addressed by training and certifying additional members to drive and operate the apparatus. Recommendation 15: That the Department immediately increase the number of

firefighters certified to operate all fire apparatus.


In discussions, the Chief and Deputy noted that the relationship with the volunteers was very positive and this was confirmed in a later meeting with the volunteers. Although there is no precise data it is agreed that the members who leave the Department do so to find work outside of the region, not for any level of discontent. There is a relatively high ‘turnover rate’ for volunteers, with 55-60% of the members having 5 years or less service with the Department. At the present time the median years of service for volunteers is three years and the majority of members joining the department do not have NFPA 1001 certification59. This in turn means that a great deal of training effort is focused on entry level skills with less time being spent on emergency scene management / incident command. Priorities The Chief and Deputy identified their major priorities as being:

Replacement/renovation of the fire hall; Additional staffing to manage training and to develop building pre-plans; Some types of incentives to have more volunteers available during the summer months; Succession planning for the positions of Deputy and Chief; and Additional staffing to manage apparatus maintenance.

Discussions with the volunteers reflected a group with a high degree of interest in the Department and its future. They spoke highly of their officers and of the training they receive. They also felt that the Chief and Deputy were focused on providing the best environment possible for them to operate. In terms of the number of responses, the volunteers felt that they were at or near the limit of the number of responses that should be expected in addition to the practice time and that adding further responses such as first medical response would be counterproductive. Their priorities included a renovation to the fire hall to provide a better training space inside and outside as well as proper change rooms and shower facilities. It was also noted that personal protective equipment (the “PPE”) should be stored in a heated and vented room, separate from any work area. There was also a strong desire to provide a proper workout facility with weights and other training material to enhance and maintain fitness levels. The volunteers noted that the Chief and Deputy appear to be fully engaged in the management of the Department and that some additional staffing is required for training and apparatus maintenance as well as record keeping.

59 This situation is entirely normal in the context of volunteer fire departments.


Apparatus

We reviewed the Department’s apparatus and with the exception of one unit (unit #28), the department’s apparatus appear to be in good shape and reasonably maintained. Although most apparatus do not meet all of the newer specifications in NFPA 1901, 2009 edition, this should not be considered a material problem, as they do meet the NFPA requirements which were in force at the time they were acquired. The Department’s fleet comprises the following apparatus:

Unit # Year in Service

Manufacturer Pumping Capacity

Water Capacity

ULC Listed

#20 Engine 2003 American LaFrance 1250 500 Yes #22 Snorkle 1990 Pierce 1050 400 Yes (expired) #25 Tanker 1997 International 0 2500 unlisted #26 Tanker 1995 Freightliner 460 1500 unlisted #27 Tanker 1999 International 0 2500 unlisted #28 Rescue 1988 Ford 0 0 N/A #29 Pick-up 2009 Ford Pick-up 0 0 N/A

The major discrepancies between what the apparatus that meet NFPA 1901 - 2009 edition have and what the other units do not have are:

Ground Fault Circuit Interrupter devices Upgraded emission controls Roll over protection Frontal crash protection Cab crash testing Air bag Protection Load voltage management Upgraded Warning lights LED lighting Lockable, 9 G rated SCBA seat mounts Vehicle Data Recorders Maximum speed governors Electronic fire pump pressure governor Seat belt warning system with new attention colour Secured equipment in the cab Securely mounted equipment within the compartments


Several of these apparatus also have unsecured equipment in their cabs and roof mounted air horns and/or siren speaker heads.

Retro fitting these units to meet all of the newest NFPA 1901 standard would be expensive if not impossible but they could be made safer for the fire crews and the public by adding the reflective decal package to the rear of all apparatus; replacing the older SCBA mounts with the new 9 G tested, securable units; replacing the warning light package; adding either hearing protection or noise cancelling headsets; removing some of the extra (but needed) equipment in the compartment; and better securing the equipment carried in the compartments.

Record keeping All of the information on the work completed (maintenance, servicing or testing) is recorded on paper (forms or foolscap) by hand and kept in folders along with the unit’s initial delivery information and stored in files within the office area. The maintenance or service work that has been done is not easily retrievable and would be better kept electronically using a module of FDM which the Department currently uses or one of the many other commercial programs that are available. Recommendation 16: The Department should record the work needed, maintenance

completed, test results, parts used, and apparatus information either using FDM system (which the department currently uses) or one of the many other commercial programs that are available.

Fire Hose The Department tests its fire hose using a portable hose testing unit, following the NFPA 1963 standard. The Department identifies and tracks each piece of fire hose by marking the hose and the coupling. If the fire hose is repaired and that section of hose is removed, there is little chance that the identity of that hose is lost as that fire hose is always identifiable. The material covering of the fire hose has an average life span of 10 years.


Maintenance All major repairs to apparatus, including the annual Motor Vehicle Inspections, are done by Quality Trucking, a firm located in Armstrong. All minor maintenance, servicing or testing that does not require a certified mechanic are done by the on duty member or, if one is available, a volunteer who is a heavy duty mechanic. The Deputy Chief performs a considerable amount of the minor vehicle maintenance as well as equipment checks. The inspection and annual pump tests of the aerial apparatus are performed by HUB Fire Engines and Equipment. The annual ground ladders and aerial ladder testing is done by an accredited testing company. While, as noted earlier, the general maintenance of the apparatus appeared to be reasonable in terms of mechanical issues, the overall cosmetic appearance (cleanliness, waxing and undercarriage) were viewed as somewhat lacking. Recommendation 17: The Department have qualified members service the apparatus

more frequently and include pressure washing/steam cleaning of the suspension and undercarriage of the apparatus.

The apparatus should be washed as soon as possible after the apparatus returns from an incident and waxed at least twice a year.

The Department should include Emergency Vehicle Technician training for the members doing the maintenance work.


Unit #20 2003 American LaFrance Engine

Unit #22 1990 Pierce Engine


Unit #25 1997 International Tanker

Unit #26 1995 Freightliner


Unit #27 1999 International Tanker

Unit #28 1988 Rescue

Training

Overview of Training and Training Standards

Volunteer fire departments form the backbone of the fire service across the country. Of the approximately 350 departments in British Columbia, some 75% of them are “volunteer” (which


includes pure volunteer, paid-on-call and composite departments where the majority of the membership is either volunteer or paid-on-call). A 2009 report by the Fire Services Liaison Group (“FSLG”) noted that most volunteer departments in the province are suffering from constrained funding and facing significant challenges in the recruitment, retention and training of volunteer firefighters. Additional regulatory requirements and increasing potential liability have made the operation of a volunteer department more difficult, demanding and expensive than in the past. In many respects, the challenges faced by the Department are a microcosm of the challenges identified in the FSLG report.

Given that the principal mandate of fire departments in the province, and in particular that of the ASVFD, is to provide fire protection, the primary focus of this review is on the training required for the members to conduct fire suppression operations safely, effectively and in accordance with statutory requirements. The fire service has made significant changes over the past 10 years, particularly with regard to regulations and standards related to managerial and administrative aspects of the service (such as the increased requirement for record keeping). Notwithstanding those improvements, the key component to ensuring effective emergency incident operations and the safety of firefighters, as well as members of the public, continues to be effective and comprehensive training.

The Province has established the training standards applicable to the fire service under the terms of a ministerial order issued pursuant to section 3(3)(b) of the Fire Services Act (B.C.) (the “FSA”). The Minister’s Order reads as follows:

“Further to the authority granted by Section 3(3) (b) of the Fire Services Act, the training standards for fire service personnel in British Columbia are those published by the National Fire Protection Association, effective January 1, 2003. Previous editions of the British Columbia fire service training standards are hereby rescinded.”

The Minister’s Order, therefore, sets NFPA standards as the basis for fire service training. It is our view that, based on the language of the FSA and the order itself, the requirement is mandatory for local governments.60 Ideally, this would mean achieving NFPA 1001 qualification for firefighters and NFPA 1021 qualifications for fire officers. The reality for most combination and volunteer/paid-on-call departments makes this goal exceptionally difficult to achieve.

It is worth noting that the Minister’s Order does not specifically provide that all firefighters must be NFPA 1001 qualified before serving on the fire ground. We believe what is intended is that, before performing a particular task or evolution, the individual in question must have been trained to the appropriate NFPA standard for that task or evolution. It is then the responsibility

60 We recognize that an opinion given by the Office of the Fire Commissioner (the “OFC”) suggests that the standard may actually be “optional”. This view does not accord with the clear language of the statute and the corresponding Minister’s Order. See: Emergency Management BC, “Information Bulletin: Minimum Training Standards for Firefighters in British Columbia” (30 November 2012). We have been advised by the OFC that this bulletin has now been rescinded.


of the incident commander to ensure that firefighters are tasked only with those functions for which they have been trained.

Each member of the organization must have the appropriate level of training in a variety of areas to suit the roles and tasks he or she will be assigned at an emergency incident. As with the managerial and administrative aspects of the fire service, significant changes have come in the area of training, both from an actual operations perspective – “let’s do it better and safer” – and in terms of increased standards and regulations. Given the interrelated levels of liability faced by the fire service, it is vital to ensure that all firefighters are trained to the appropriate level for the operations which they undertake. Appropriate training will make reduce risk, improve operational effectiveness and, ultimately, enhance recruitment and retention of volunteers The need for proper training has never been greater. The nature of modern construction techniques has amplified the risks faced by firefighters and the public. Lightweight construction components and contents made of composites, synthetics and other unusual fuels, cause fires to burn hotter, faster and with less predictability, creating a much more volatile fire environment than that of the past. Although firefighters are now better equipped, fires today pose a greater risk than those faced in the 1970s and 1980s. Having recognized this, the fire service is now placing a much greater emphasis on firefighter safety, with a particular focus on interior operations, and seeking to better manage the degree of risk to which firefighters are exposed. This is accomplished by increased levels of comprehensive emergency incident training – the knowledge and various skills required safely and effectively to perform a variety of functions at emergency incidents.

The issue of appropriate training levels must also be considered in light of WorkSafe BC requirements and the obligation of employers to ensure that their workers are adequately trained for their duties and properly supervised while performing them.61 An employer that fails to train and supervise its employees properly is in breach of the WCA. The goal, therefore, should always be to maximize training for all firefighters, and to limit their emergency incident operations to those tasks for which they have been properly trained. To accomplish this, a department must also ensure that all firefighter activities are always supervised by a suitably trained fire officer.

The two key areas of training required to ensure that a fire department will function effectively and safely, and meet today’s accepted fire service standards, are:

the operational skills that pertain to emergency service delivery – the various fire fighting and rescue skills along with emergency incident management skills; and

61 See sections 115 and 117 of the Workers Compensation Act (B.C.), as well as Part 31 of the Occupational Health and Safety Regulations (the “Regulations”) made under that act. There are also particular obligations on employers to ensure that new workers are adequately trained for tasks which they required to perform. See sections 3.22 – 3.25 of the Regulations, and related WorkSafe BC guidelines.


the skills that pertain to the day-to-day non-emergency leadership and supervision of members and the effective administration and management of the organization.

From the emergency service delivery perspective, aggressive interior operations such as fire attacks and primary searches require firefighters to enter a hazardous environment. These operations dramatically increase the risks from adverse fire events such as flashover, smoke explosion or backdraft, along with exposure to a variety of other perils, thereby posing the most significant risk to firefighters in emergency operations.

A line of duty death or serious injury is a risk that all fire departments must seek to avoid. In the event of a serious injury or line of duty death, the impact on the individuals involved, their families and the department can be severe and long lasting. There is also a significant potential for liability for the department, its officers and the relevant local government.

Fire Department Training and Training Facilities

Training Program

In general, we found that the Department compares very favourably to most volunteer and many composite departments which we have reviewed throughout the province. The Chief and officers should be commended for their focus on the proper training of their members. Nevertheless, there are a number of areas – such as the Department’s approach to records keeping and the need for more thorough, formal consideration of required proficiencies and standards for various emergency scene operations – that the Department could usefully focus on to enhance operational effectiveness and better manage both risk and potential liability.

The Consultant did not witness actual operational training of Department members during the audit, but did review a sampling of the Department’s available training records. Accordingly the following comments are largely derived from the discussions with the Fire Chief and Deputy Chief as an indicator of the level of operational readiness of the Department to carry out its mandated emergency response activities. Based on these discussions, our understanding of the various training approaches in place and the expected proficiencies, the current individual members’ training is likely at an acceptable level relative to the provincial requirements62.

However, given the lack of comprehensive individual training records it is difficult readily to confirm that this is in fact the case for each member. That issue, coupled with the lack of OGs which define these training requirements, means it is not possible definitively to conclude that the current levels of training are adequate, or inadequate, in any specific area. Once these OGs and more detailed records are in place, the Department will be better positioned to determine whether the levels of training for each member are in fact at an acceptable level and

62 The Minister’s Order as noted earlier in the document with regard to the NFPA standards as mandatory for the training of fire fighters in British Columbia.


continue on with training from there, or that they are not, and from that determine the areas that require improvement.

This is not to suggest that the Department does not have individual training records, but rather a comment that the current individual records do not reflect all training activities specific to that member. For example: the training activities of each member on a specific weekly practice night are simply recorded for that given date and are not included in the individual member’s file to form a comprehensive record of their training activities. Similarly, any subsequent maintenance training is also not consistently tracked by individual record. The Department now has the FDM computerized records management system, but officers have no time to input the required historical information to start utilizing it. In addition, they lack sufficient training on the system (which is comprehensive but also complex), so the computerized RMS is not being utilized. In addition to maintaining comprehensive, easily accessible individual training records, the FDM system can also be used to maintain inspections records, pre-plan information for high risk properties, payroll data and similar data for the Department. One suggestion to help get this system up and functioning was the addition of a paid clerical staff member, possibly part time, who would be trained in the use of the system and made responsible for managing the data entry.

Based on the nature of the existing training records, it may be challenging to satisfactorily prove the training and certification levels of each member, if the Department was required to do so in a contested situation such as a WorkSafe BC inquiry. A detailed discussion on Fire Department records keeping including recommendations can be found in the records section of this report (below).

The Department provides fire suppression operations along with hazardous materials response at the awareness level, low-angle bank rescue, vehicle extrication and FMR when requested by the BCAS. There are also a few members who have high-angle and confined space training (yet not enough to provide this as a service to the community). Other than the basic firefighter training, the other programs are provided as in-house programs by in-house instructors.

The basis for firefighter training in the Department is the NORD Basic Program (40 hours) which contains nine separate chapters or subject areas, most of which reference chapters in the IFSTA63 Essentials of Firefighting Manual (5th Edition) (“IFSTA”). The NORD Basic Program lessons are delivered at the NORD Fire Training Centre in Vernon.64 The program outline 63 International Fire Service Training Association. IFSTA itself reflects NFPA requirements, which makes it compliant with the Minister’s Order on training under the FSA. 64 The subject matters covered by this program are: fire service orientation and safety (which includes firefighter duties, responsibilities, safety, person protective equipment, apparatus safety, fire ground safety, hazards, injuries and laws/regulations); fire behaviour; extinguishers and extinguishing agents; small tools and equipment; apparatus familiarization; ropes and knots; hazardous atmospheres; SCBA; ground ladders; fire hose; fire streams; salvage and overhaul; ventilation; search and rescue; natural gas and propane safety; electrical safety; building utility searches; fire suppression; and live fire control procedures – Live-Fire I and partial Live-Fire II.


utilized by the NORD follows the “BC Basic Fire Fighting Program” (“BC Basic Program”) and its evaluation processes, which was developed by the Justice Institute of BC Fire and Safety Division (the “JI”), which also is based on IFSTA.

The BC Basic program was designed to allow fire departments to demonstrate that their firefighters possess the minimum firefighting skills, within the requirements of the NFPA 1001 Standard,65 to enable them to function at a basic level as team members under direct supervision of a qualified officer while engaged in exterior operations on the fire ground. It was intended to provide a consistent, basic training standard for British Columbia volunteer/paid-on-call fire department members and to provide them with the requisite skill sets required to serve their communities. The NORD Basic Program meets or exceeds all of the subject areas identified in the BC Basic Program. With its inclusion of live fire training covering Live-Fire I (“LF-I”) and some aspects of Live-Fire II (“LF-II”), it is a significant improvement on the BC Basic requirements. This is a very important addition to what most basic recruit training programs include, for which the Department and the NORD Training Centre should be commended. The Deputy Chief/Training Officer is well experienced in live fire training and the Department has benefited significantly from his efforts in this aspect of the Department’s training.

As the program is fundamentally based on the IFSTA Essentials of Fire Fighting Manual and the NFPA 1001 standards, it is therefore reasonable to conclude that the Department’s training program currently complies with the Province’s firefighter training requirements. When successfully completed, the NORD Basic Program:

meets the obligation under the Minister’s Order to train members to NFPA standards for the relevant fire ground operations covered; and

if properly documented, would enable a Department to demonstrate that its firefighters possess the minimum firefighting skills within the requirements of the NFPA 1001 standard, to function safely and effectively as team members engaged in exterior operations on the fire ground and for most offensive interior operations with fire involved structures.

As noted, however, given certain deficiencies in the available information, it is not possible definitively to confirm that the current levels of training of individual members meet all such requirements. The question of how the training is documented is discussed separately, below.

The Department may occasionally have the opportunity for local live fire training with acquired structures and provides guidance as to how to conduct this type of training and the requirements for who can instruct and manage these exercises in OG #3.03.

65 Standard for Fire Fighter Professional Qualifications; the most current version of this standard was last updated in 2013. The NFPA is a consensus-based standards setting organization for fire and emergency services.


Interior Operations

In general, unless the situation presents firefighters with an immediate life safety issue (a saveable life), firefighters should not be subjected to the high degree of risk presented by aggressive interior operations to save a structure or its contents. With a good understanding of the appropriate strategies and tactics that can be implemented, and with the correct levels of training to achieve these, fire suppression can be successfully accomplished from a safer, exterior, more defensive mode of operations that materially reduces risks to firefighters. To prepare for interior operations, fire departments need to ensure that their members are properly and fully trained to address the risks they face.

There are three fundamental elements that a fire department should meet before undertaking offensive interior operations:

1. Appropriate NFPA-based training program for interior team members, including LF-I; 2. Appropriate NFPA-based training program for team leaders and incident commanders;

and 3. OGs which detail both the required training levels of responding members and officers,

as well as the fundamental considerations to be taken into account by incident commanders before ordering an entry into a fire-involved structure.

As noted, the Department’s training program, once completed and appropriately documented, is sufficient to qualify its members for interior operations. It should be noted, however, that incident commanders and team leaders must meet those minimum qualifications plus have full LF-II training. Incident commanders also require appropriate Incident Command System (“ICS”) training.

The Department’s OGs describe the various levels of firefighter: recruit, probationary and full firefighter. They also stipulate that the minimum requirement to attend emergency incidents is completion of the recruit basic training and being accepted as a probationary firefighter, but they do not indicate the required training and proficiency criteria for various fire ground tactics and tasks, such as offensive interior operations. The determination as to whether a member is qualified for interior operations, however, generally is not made formally. Rather, it is left to the Incident Commander’s discretion as to whether a member is sufficiently trained for such operations. At present, some 19 of 38 Department members are deemed sufficiently trained for interior operations.

The Department should focus on preparing OGs which specify the particular qualifications needed for incident commanders, team leaders and team members in connection with conducting interior operations. Ideally, the OGs should specify the training requirements for each principal fire ground task to which a member may be assigned.

Revisions to the Department’s Training Program


In addition to the NORD Basic Program, there should be a supplemental firefighter training program, with the appropriate evaluation processes and checklists, covering the training of members in various areas (based on the service requirements of the Department) such as toward the NFPA 1001 Firefighter I (“FF-I”) and Firefighter II (“FF-II”) levels. This will enable the Department to assess and evaluate each member’s progress to determine when he or she has successfully achieved these required or expected standards of performance.

We have therefore recommended that the Department review the NORD Basic Program and create a structured outline for a supplemental program supported by appropriate OGs that would identify the minimum training qualifications required for the various firefighting functions and activities on the fire ground. The criteria would enable the Department to know when it can permit a member to attend an emergency incident and operate safely on a fire ground or conduct offensive interior operations. The easiest approach might be to develop the relevant OGs which stipulate:

the general areas of training required for attendance at an emergency incident (and limitations on activities undertaken) by probationers;

the training required for participation in exterior operations at an active fire ground and other incidents to which the Department responds;

the training required for participation in offensive interior operations;

the training requirements for a member to take on the role of a “team leader” of an interior team;

the training requirements for a member to act in the role of Incident Commander involving only exterior operations; and

the training requirements for a member to act in the role of Incident Commander at an incident which involves interior operations.

Thought will also need to be given to the training and supervision responsibilities related to actions at wildland and interface fires, which pose a different set of risks than structure fires, as well as hazmat, rescue and FMR responses.

The following are additional areas of training to consider adding to an overall training program outline, over and above the NORD Basic Program, to assist in qualifying members for the above mentioned roles:

Live Fire II Live Fire III Strategies and tactics The Incident Command System (the use and application of ICS to the 200 level) Personnel accountability system Incident safety officer (ISO)


Rapid intervention teams (RIT) Emergency Vehicle Driver Emergency Vehicle Operator Portable fire extinguishers Dangerous goods responses – hazardous materials and substances (at the awareness

level) Exposure to blood borne pathogens (and reporting of same) Electrical emergencies Natural gas emergencies (where applicable)

Salvage and overhaul operations (health and safety provisions).

Officer Training

The Department’s organization is structured with six Captains, each responsible for five firefighters, primarily for training purposes, but these Captains are also responsible for the supervision of firefighters at incidents. The Captains are elected positions, and then appointed by the Fire Chief, but at this time there are no written proficiency criteria or qualifications, or training requirements in the OGs, before a member may be appointed as a Captain. The Deputy Chief/Training Officer has indicated that there is a policy requiring a candidate for the position of Captain to have completed the “Fire Attack” program developed by “Emergency Resource”, but this requirement is not always adhered to. As important as it is to have firefighters trained to a standard and required level of proficiency, it is equally as important to ensure that all officers also meet the requirements of the NFPA standards as it pertains to the duties they will be required fulfill.

As with firefighters, fire officers must adhere to the limits of their actual training. Given the current lack of written proficiency criteria for officers, the Department should begin to address the need for fire officer development by developing minimum standards for members to achieve the role of Captain. Under this approach, members should have completed the NORD Basic Program (minimum, NFPA 1001 preferred), Fire Service Instructor 1, as well as an Emergency Incident Management Level 1 course (a portion of the NFPA 1021 Standard). All officers should be working towards completion of the NFPA 1021 Standard.

As the Department’s OGs do not consider the minimum levels of training and qualification required to be appointed to the position of Captain, a review of the current Captain’s skills and training in this regard should be formally undertaken and documented. To the extent that gaps currently exist in this training, they should be bridged as soon as possible. To accomplish this goal, the Department’s training should first be supplemented by a higher level of emergency incident management training, Live Fire Level II and Level III training. In addition, the Department should offer other training opportunities focused on operational command issues, to better prepare members for the role of Captain. Secondarily, the Department should then address the administrative skill training which NFPA 1021 includes.


The Department currently offers Emergency Vehicle Driver (“EVD”) and Emergency Vehicle Operator (“EVO”) training for members who will be driving and operating Department apparatus through an informal, non-accredited training program. There are three or four instructors who deliver the programs; each is a professional driver holding a class one licence. Upon successful completion of the in-house requirements which include an air brake endorsement and being signed off by the instructors on each individual apparatus (to be able to drive that particular vehicle), a member is deemed to be an apparatus driver/operator. In this regard, the Department compares very well to most other volunteer departments we have reviewed. We have recommended that the Department circumscribe their emergency operation of the fire apparatus to only those members that have successfully completed the appropriate levels of training which meet or exceed the requirements of NFPA 1002 Standard for Fire Apparatus Driver/Operator Professional Qualifications.

Establishing detailed proficiency criteria for the various roles of firefighters will assist the Department in improving operational effectiveness and the safety of members and the public at emergency incidents. In the long term, these standards and guidelines will also improve the Department’s ability to retain and motivate its volunteer members, enhance leadership, and better enable it to fulfil its administrative responsibilities.

The training issues noted above can be addressed by continuing the development and implementation of properly considered firefighter and fire officer proficiency requirements, along with refining and upgrading the standardized operational guidelines and training programs needed to attain them. This will better enable the Department and its officers ensure that all firefighters meet or exceed the Province’s training requirements.

Training Facilities

The available training facilities lack sufficient classroom space and have no desks or tables with sufficient space for each participant to work from. A larger, properly equipped classroom is required, an issue that was identified in a previous proposed hall expansion plan. Also, the HVAC system in the building/training room is insufficient thus the classroom gets uncomfortably warm on hot days. The outside training ground meets certain of the Department’s requirements, in that it is suitable for basic firefighting skills and vehicle extrication training. However, the Department requires access to a larger training ground and improved props to enable proper multi-unit exercises and full scenario-based training.

There was also an expressed interest in more training for Chiefs and Fire Officers with regard to their administrative role and responsibilities in addition to their operational roles – such as records keeping, incident reporting, liability and legal responsibility and similar matters, given there is currently no specific criteria for officer training.

To assist the Department in determining the appropriate level of training for firefighters, the requirements of the NFPA 1001 FF-I and FF-II, as well as additional details on Live Fire Training, are set out in Appendix 2. These criteria should be used as a guide when establishing or refining the proficiencies and qualifications required of Department members.


Additional Risks and Reference Materials

The Departments also faces a significant interface risk. Wildland and interface fires pose materially different risks than structure fires. They also involve coordination and cooperation with the Wildfire Management Branch. More joint training with the Wildfire Management Branch would be useful and should be actively reviewed by the Department with the support of the City and Township.

Recommendation 18: The Department not undertake offensive interior operations when dealing with fire involved structures until it has met the next two recommendations.

Recommendation 19: The Department should develop written operational guidelines dealing with all principal fire ground operations, including offensive interior attacks. The written operational guidelines for interior operations, among other things, should specify the minimum levels of training and qualification for fire attack and primary search teams involved in such operations.

Recommendation 20: The Department conduct a formal internal assessment of their training records to review the actual NFPA training levels achieved by each of their members, and to clearly identify each member who is qualified to undertake offensive interior operations (for which they have sufficient records to support this position) as noted in recommendation 19.

The Department should develop a method to visually identify these members such that they can readily be recognized by the Fire Chief and an Incident Commander at a working incident.

Where necessary, the Department and its officers should circumscribe their emergency incident operations to the training levels of the members present at an incident, given that firefighters and fire officers must adhere to the limits of their actual training.

Recommendation 21: The Department should develop written training outlines indicating the training its members are expected to achieve for the various roles, tasks and tactics they may undertake on the fire ground, such as the different levels of firefighter – recruit, basic, and senior firefighter, firefighters capable of interior operations as a team member, as a team leader, fire officers (Lieutenants and Captains) and chief officers as team leaders, division and group supervisors, and incident commanders (this could be done in conjunction with the previous recommendations)


Recommendation 22: The Department should develop a written training outline indicating all courses available to its members; specifically those that are additional – over and above the NORD Basic Program.

Recommendation 23: The Department should develop written performance evaluation processes (knowledge testing and skills checklists) for all programs that are additional to the NORD Basic Program as well as for LF-I and LF-II to enable the Department to assess and evaluate each member’s progress and determine when he or she has successfully achieved the required or expected standard of performance to ensure consistency in all firefighting skills.

Recommendation 24: The Departments conduct a formal internal assessment of their training records to clearly identify each member who is qualified to drive and or operate fire apparatus (for which they have sufficient records to support this position). From that review, the Department should develop a list of these members such that they can be readily identified, and the Department limit the emergency operation of the fire apparatus to those members with the appropriate levels of training.

Recommendation 25: The Department should develop specific pre-requisite criteria for members to attend LF-I, LF-II and LF-III, as well as rapid intervention team, training programs. These criteria should include that all participating members have met the requirements of the NORD Basic Program and that, prior to members conducting search and rescue operations under live fire conditions, they have previously been trained to do so in a non-live fire environment.

Recommendation 26: The Department should develop written operational guidelines that would identify the minimum qualifications and proficiency criteria for the role of live fire instructor at any live fire training event, including for live fire training in acquired structures. The Department should review the qualifications of all officers expected to instruct live fire training sessions to ensure that each meets these requirements and expectations.

Records Keeping One of the most significant changes in requirements for fire departments has been the increased need to create and maintain thorough records of department operations, maintenance


and training. Meeting these obligations is necessary to ensure that the Department can oversee operations to improve member safety and to limit liability concerns for the Department.

The critical nature of proper records keeping was made evident in the accident investigation report conducted by WorkSafe BC into a 2004 line of duty death in Clearwater B.C. In that case, a 23 year old volunteer firefighter, Chad Schapansky, died during an interior attack at a restaurant fire. The WorkSafe BC investigation noted, among other things, that:

the Clearwater department lacked written operational guidelines governing interior attacks;

neither the Fire Chief nor the Deputy Chief could prove that they had accredited incident command training;

the Clearwater department could produce no training records for accredited training done by the interior attack team, rapid intervention team or fire officers in charge; and

there was no documentation proving that the SCBA equipment had been serviced or repaired by qualified persons, and the records themselves had not been maintained in accordance with the required standards.

The Chief indicated that their members are, for the most part, trained to the NFPA standards in that the NORD Basic Program is based on IFSTA and NFPA, but their records keeping methods makes it challenging to confirm that the necessary ongoing maintenance of this basic training is occurring for each individual member. Although the Department’s training records are generally good, given the lack of readily accessible, comprehensive individual training records for each member, and the challenges the Department faces in utilizing its computerized RMS, the Department cannot easily and readily identify all of an individual’s training history to establish his or her current training levels and corresponding skills and proficiencies. There is also a general lack of back-ups to the Department’s existing training records. Most of the records are paper-based and although FDM RMS is available, it is not yet in use.

The Department essentially retains two levels of records: one set is individualized, and contains most of a member’s primary training (e.g., completion of NORD recruit training); the second set comprises the records of weekly training, which are not maintained on an individual basis. One would need to review all of such weekly records and extract from them the training of a particular firefighter, if this proved necessary. As such, the Department’s training records management system and the data maintained within do not provide a readily accessible record of the specific training accomplished by each individual member, along with the required practice sessions to maintain these skills.

This approach to records keeping makes it difficult to readily determine the level of operational training for each member or their current training needs. It would be challenging for the Department to prove the training levels of its individual members if there was an investigation by WorkSafe BC or the BC Coroners Service in the event of a firefighter line of duty death or serious injury.


The FDM RMS training module is available to the Department but has not been implemented because of issues of complexity and staffing. We would strongly recommend that the Department take advantage of the FDM RMS as soon as possible. We would also recommend that the Department, in consultation with the City and Township, develop a plan to provide the necessary training, administrative support and assistance that will be required to enable the transition of historical records onto the FDM RMS. The goal should be to input existing records into the FDM RMS and train members in its use for on-going record keeping purposes.

The Department has indicated that it likely will require some paid administrative support to update its records keeping and make use of the FMD RMS. We would agree with this approach.

Maintenance of appropriate training records is crucial for fire departments.66 Records should be stored in a manner that enables the department to readily confirm the specific training levels of each individual member. Back-up copies of the records should also be maintained off-site. In the Clearwater incident, the lack of adequate training records led both WorkSafe BC and the Coroner to conclude that the department members conducting the interior attack lacked the training necessary for the operations that they undertook – even though the Fire Chief maintained that both members of the interior attack team had the training needed for the roles they played.

The records for specific areas of training should be maintained for each individual member and should show:

Levels of recruit and probationary training achieved and when accomplished; Training sessions attendance (specific subject, date and hours involved); Additional yearly formal training (including records of weekly and special training

sessions and all certifications attained); and Ongoing yearly maintenance training in the various areas (to retain the levels of

knowledge and skills achieved).

Given that the Department’s current record keeping process does not provide a comprehensive record of all firefighter training for each individual member, such that the progress and level of each member can be readily monitored and easily identified by the Chief and other officers, we make the following recommendations.

Recommendation 27: The Department continue with the implementation of the FDM RMS in order to provide an effective RMS solution for training records. The Department should immediately begin utilizing the FDM RMS to enable them to maintain a comprehensive set of

66 Properly maintained training records are also essential to prove that the employer has met its obligations to train its workers, as required under s. 115 of the Workers Compensation Act (B.C.)


training records indicating all training that has already been delivered to each member in addition to all subsequent training provided. This approach will enable the Department readily to confirm the operational readiness of each of their firefighters. The implementation plan will need to take into account the training and administrative support that the Department will require to utilize the program and input their existing records and manage their records into the future.

Recommendation 28: The Department review and inventory all training related records to be maintained. Once the inventory has been completed, the Department should develop standard forms for each subject area to be used by all members. These forms should align with the computerized record keeping system to ensure consistency and ease of data input. The Department should also plan to maintain back-up copies of each record, once electronic versions are available.

Recommendation 29: The Township and City in consultation with the Department assess the need for the creation of the position of a Station or Administrative Officer, where the primary responsibility will be overseeing Department record keeping. It is suggested that this position be paid the hourly paid-on-call rate, based on the time required to update and then regularly input and maintain Department records.

Fire Prevention The Department provides a full range of fire prevention and protective services including: fire inspections, business licence inspections and queries, planning and development referrals, fire investigation and general queries from the public. All aspects of Fire prevention and Inspections are managed and performed by the Deputy Chief/Fire Inspector who is the Department’s only fulltime employee. The Deputy takes a Department vehicle during inspections and responds to emergency incidents directly when required. Some concern was expressed in that the Deputy has been directed to not respond to emergency incidents during his regular daytime work hours as this takes away from his fire prevention responsibilities. However, given his skills and expertise as a trained and well experienced apparatus operator and firefighter and as one of the most skilled members of the department, his attendance at emergency incidents is imperative to effective operations and firefighter safety.

The inspections are currently managed using the Regional District’s PIMMS software program. The Department is in the process of converting the inspections information from the PIMMS software program into the FDM RMS, which is used by a number of fire departments in B.C. However, the Deputy reports that the actual data input of updated inspections into the FDM


system, is between one and two years behind schedule due to a lack of time to input the data. This is an unfortunate situation and one that should be addressed immediately.

While we can appreciate that the data entry of information obtained during fire inspections is a time consuming process, having an up-to-date computerized inspections system is paramount to maintaining a modern fire prevention program. Without up-to-date data input the Department is really operating on a paper based system. We would recommend that the Department consider either making use of existing City/Township data-input clerks or temporarily hire such a person to address the backlog of inspections that need to be input into the system.

The ASVFD undertakes between 550 and 600 fire inspections annually, most of which are commercial properties. The Department, however, will conduct residential inspections on request. According to the Deputy Chief, the fire inspection program is the top priority of his role within the Department. As such the Department has generally been meeting the mandated interval between inspections; however, as a result of an ever increasing workload it is becoming increasingly difficult to fulfil the other aspects of the Deputy Chief’s role, such as apparatus, equipment and fire hall upkeep. The Department does not bill for initial inspections, considering it to be part of the basic service.

Businesses can be billed for re-inspections or fined for violations. It should be noted that some fire departments in the province have chosen to begin charging for inspections on a cost-recovery basis.

The Department conducts its own investigations to determine fire cause and the Deputy Chief has been appropriately trained and certified to do so. The subsequent requirement to report fire cause to the Officer of the Fire Commissioner is managed by submitting a PDF copy of the investigation report. In addition to his regular wages, the Deputy Chief receives a monthly standby stipend (currently $200) for being available 24/7 to conduct fire investigations.

The Department does not do any formal pre-planning of major risks in the fire protection area other than occasionally visits potential risk sites for crew familiarization. Fire pre-planning of major risks in the fire protection area is critical to improving the effectiveness of emergency responses and increasing the safety of responding fire crews. We recommend that the Department consider implementing a formal pre-planning program in the future.

Emergency Response Analysis The Department provides emergency response for fire and rescue incidents, some limited FMR service (only at the direct request of the BCAS dispatch), motor vehicle incidents in the fire protection area (will respond out of district after securing a PEP number) and will assist the local search and rescue team (“SAR”) on request. In addition the Department responds to public assist calls as required. A detailed breakdown of all responses by type, hour, day, month and year can be found below. In addition, the Department responds to Hazmat and water rescue incidents on an awareness only level.


The response data was provided by the dispatch provider and includes all responses from the time the Fraser Valley Regional District assumed control of dispatch for the Department.

Total Events by Year The Department is responding to an increasing call volume as shown in Table 1. Year/Month Number of Responses

2011 37

Sep 2

Oct 12

Nov 9

Dec 14

2012 173

Jan 10

Feb 6

Mar 6

Apr 12

May 15

Jun 16

Jul 19

Aug 20

Sep 22

Oct 19

Nov 15

Dec 13

2013 133

Jan 13

Feb 8

Mar 13

Apr 11

May 14

Jun 24

Jul 22

Aug 14

Sep 14

Grand Total 343

Table 1

The increase in responses is also illustrated in Figure 4 with the busiest period for the Department being during the summer months which as noted in a previous section is time when fewer volunteers are available to respond.


Figure 4

Total Events by Month The cumulative responses by month are shown in Figure 5. This type of a response pattern is quite common with most fire departments with the summer often being the busiest time.


Figure 5

For this Department the occurrence of a higher call volume during these months should be a consideration in terms of attempting to provide a minimum, standby crew at certain times.

Responses by Day of the Week Responses by day of the week are shown in Figure 6 and this is also typical of most fire departments with Friday and Saturday often the busiest. This information is useful for a number of reasons in particular for scheduling major service to fire apparatus. Where possible this should be scheduled to occur on the days of the week with the lowest call volume as there is less likelihood that it will be interrupted by a callout.


Figure 6

Responses by Hour Responses by hour are shown in Figure 7 and this is also typical. Fire department responses regularly peak between noon and 6 pm. In a similar fashion to the responses by day of the week, this strongly suggests that training activities and major apparatus servicing should where possible be scheduled for the morning.


Figure 7

Responses by Fire Hall Area The response data can also be parsed by response area to understand the frequency of callouts to Armstrong and Spallumcheen. This is shown in Table 2. Year and Month Armstrong Spallumcheen Total

2011 13 24 37

Sep 1 1 2

Oct 4 8 12

Nov 3 6 9

Dec 5 9 14

2012 62 111 173

Jan 5 5 10

Feb 3 3 6

Mar 1 5 6

Apr 2 10 12

May 4 11 15

Jun 3 13 16

Jul 8 11 19

Aug 8 12 20

Sep 9 13 22


Oct 6 13 19

Nov 8 7 15

Dec 5 8 13

2013 45 88 133

Jan 3 10 13

Feb 3 5 8

Mar 2 11 13

Apr 4 7 11

May 6 8 14

Jun 10 14 24

Jul 7 15 22

Aug 5 9 14

Sep 5 9 14

Grand Total 120 223 343

Table 2

This response by jurisdiction is shown graphically in Figure 8 and it is clear that the call volume changes by month in a similar fashion, but that call volume is consistently higher for Spallumcheen.

Figure 8: Response by Jurisdiction—Armstrong (blue), Spallumcheen (brown)


Response by Event Type The responses for each jurisdiction can be further analyzed to clarify which types of callouts occur in each area. This is summarized in Table 3. Event Type Armstrong Spallumcheen Total

Alarms 58 31 89

Assist 4 2 6

Complaint 11 63 74

Electrical 6 11 17

Fire 14 47 61

Fire Check 1 3 4

FMR 14 16 30

Hazmat 7 3 10

MVI 5 45 50

Grand Total 120 221 341

Table 3

This information is graphed in Figure 9 and it is quite clear that the balance of responses is quite different between the two jurisdictions.

Figure 9

The spatial distinction between responses for Armstrong and those for Spallumcheen will be useful when considering the number of fire halls and their locations. The following series of maps identify the incidents by response type.


Figure 10 shows the distribution of structure fires in the two areas.

Figure 10: Structure Fires


The distribution of calls for ‘alarms ringing’ is shown in Figure 11 and concentration of these within Armstrong is obvious. This concentration is likely due to a higher number of commercial operations within the City and it is expected the Department will continue with inspections and education to reduce these where possible. Some local governments have become quite aggressive in charging for false alarms (usually after second false alarm in the calendar year).

Figure 11


Figure 12 shows the distribution of medical responses and these are distributed approximately on the basis of population.

Figure 12


Figure 13 shows the distribution of callouts for hazardous materials and in the case of this incident type they are concentrated to a large extent in Armstrong.

Figure 13


Finally, the response to all incident types can be demonstrated and this is shown in Figure 14.

Figure 14

Fire Hall The ASVFD fire hall is located within the City of Armstrong at 3540 Mill Street. The building is of concrete block and steel truss construction, built in 1978. It consists of four drive-through bays (although not large enough to be considered double bays) and has officers’ offices, a training room, limited washroom facilities, a members’ kitchen/lounge area and a small workshop/mechanical room. The building also has a small hose tower for hanging and drying


fire hose. The hose tower lacks a properly placed and secured ladder to access the elevated work platform, along with security/stability concerns with the structural integrity of the platform; this presents safety concerns that should be addressed. All apparatus bays have vehicle exhaust extraction units installed, thereby complying with those WorkSafe BC requirements. The fire hall is extremely crowded and lacking adequate space for apparatus, equipment, storage or training. In addition, concerns were expressed with the fire separation between the apparatus bays and the living quarters/offices of the fire hall in that the present situation would likely not comply with the present building/fire codes. Safety concerns were also expressed with the structural integrity of the emergency fire escape platform and stairs from the second floor at the front of the building. Turnout gear is currently stored in one of the apparatus bays. This situation, while not uncommon in older fire halls, is not ideal due to the potential contamination nor does it comply with current industry standards for the proper care and cleaning of fire fighter turnout gear. In addition, the SCBA filling station is located in the workshop – which is also used to repair tools and minor equipment (including small gas engines). In addition the same space contains the laundry facilities. Conducting all of these cleaning, maintenance and repair functions within the current confined space is not an ideal situation nor does it reflect industry best practices and standards. The mask servicing area is on part of the work bench and, at the very least, this area needs to be kept clean. The cooling for the SCBA air fill compressor and the hall airbrake supply compressor is through a hole cut into the inside wall of the tower. The tower is over-crowded and lacks adequate ventilation with the drill ground water backflow valve, hose storage, ladder storage in that small area as well there are several storage platforms that are accessible by a long wall ladder with no safety rail. The two air compressors and fill station are situated next to the apparatus floor with little to no sound deadening to protect the crews working in the vicinity. The hall is located in the general geographic center of the fire protection district although its position relative to the highway creates a minor impediment to quick egress when responding south to the Spallumcheen industrial area. Further discussion on the hall’s current location from the perspective of incident responses can be found in the Emergency Response Analysis section of this report. The building is approximately 35 years old, and while it has served the Department adequately for a number of years, it is now in need of either replacement or upgrading. It should be noted that our area of expertise does not allow us to offer structural or engineering advice but rather we provide a working knowledge of the administrative and operational requirements a modern fire hall should provide to ensure an effective and efficient fire department operation.


Replacing or materially upgrading a fire hall is a significant capital investment. As such, it is essential to determine the range of uses the building will need to accommodate. For example – will career firefighters be stationed in the building in the foreseeable future? Will the building serve as a secondary use within the community e.g., as a community meeting place or a gathering place during emergencies? The answers to these and other similar questions will determine to some extent what needs to be included in the building. For the sake of this review we will assume that the existing building will be remodeled as opposed to being replaced however the City and Township will need to complete a full analysis on future needs prior to proceeding. The following is a general overview of the (basic) activities and general space(s) required in a fire hall: Drive through apparatus bays suitable to park two standard fire trucks back to back with

ample space to safely walk around both vehicles and allowing for the vehicle cabs to be raised. The number of bays will be determined by the number of apparatus the Department will require in the foreseeable future.

Training room(s) to ensure two simultaneous (classroom style) training sessions can be conducted. One large room that can be divided into two separate rooms also works.

Kitchen and lounge facilities such that a group meal can be prepared and consumed. This is important in volunteer organizations where camaraderie and team building is a part of the local tradition. It is also important if the building is to become a community sheltering space during major emergencies.

Workshop areas – for tool, hose and equipment repair. Hose/Training tower used for drying hose, ropes, etc. and for ladder, rope and other training. SCBA filling station room (a clean area as opposed to a shared workshop) Turnout Gear – washing and drying area Offices for Fire Chief, Deputy Chief and a combined office for other officers. Gender neutral washroom(s) including shower facilities. Supplying several “gender neutral”

facilities ensures privacy for everyone. A dispatch office (close to the apparatus bays) to house dispatch equipment, portable

radios, batteries, mapping, fire hydrant books, etc.

Recommendation 30: That the City and Township, in consultation with the Department, undertake a fire hall upgrade study including a review of future needs and spatial requirements.

Recommendation 31: Based on the outcomes of the above noted study, the City and Township should consider upgrading the current fire hall.

The following pictures illustrate the current crowded conditions as seen during our site visit:


Current Workshop Area


Compressors, supply storage

Shop air and SCBA compressors with storage

SCBA air fill compressor showing breathing air and cooling air supply


Storage on top of the air-fill station

Laundry facilities and storage areas


Laundry wash tub showing storage

Dryer with turnout and storage


Tower showing hose storage, outside water valves and storage deck

Tower showing ladder access, hose and storage


Tower showing storage areas


The Fire Chief and Deputy Chief offices


Fire hose and PPE storage

Fire Hall Location The location of the current fire hall was reviewed in terms of its ability to provide timely response for fires and other emergencies. The requirement for response is identified by the Fire Underwriters who consider that a commercial property should be within 5 kilometres by road from a fire hall and a residential property should be within 8 kilometres for them to be considered as ‘protected’.


On that basis the following maps were developed to shown the coverage from the existing fire hall in Armstrong. In these maps, the red boundary is Spallumcheen and the blue boundary is Armstrong. The 5 kilometre response polygon from the fire hall is shown in yellow, the 8 kilometre polygon is shown in orange.

Figure 15: Yellow is the 5 km limit; Orange is the 8 km limit. Blue is the City boundaries.

Figure 15 illustrates that all commercial and residential properties in Armstrong would likely be considered as protected, while a majority of Spallumcheen would not.


This is shown in greater detail in the following maps. Figure 16 shows the coverage deficit in the south part of Spallumcheen.

Figure 16: Yellow is the 5 km limit; Orange is the 8 km limit.

The map in Figure 16 shows that the industrial area and that the area around the Township’s administrative offices would be considered outside of the coverage limit for industrial or commercial properties.


Figure 17: Yellow is the 5 km limit; Orange is the 8 km limit.

Figure 17 shows the coverage deficit in the north part of the fire protection area with a significant portion outside of the 8 kilometre coverage objective for residential properties and a very large exclusion area for commercial/industrial properties.


Figure 18

Figure 18 illustrates the plot of all responses against the 5 and 8 kilometre coverage polygons and it is clear from this that a significant number of these are problematic. In terms of future developments, the most pressing need will be for the implementation of a second fire hall to protect the south part of Spallumcheen. Recommendation 32: That the Department commence planning in the near term for a

second fire hall to provide coverage for the commercial/industrial properties as well as residential properties in the south part of the fire response area.


Fire Underwriters Survey The City and Township received a review by the Fire Underwriters in 2010.67 This section will examine the role and importance of Fire Underwriters Survey (“FUS”) reviews, provide a brief background on the methodology employed and summarize the most significant recommendations that were made in 2010.

The Fire Underwriters are a national organization administered by SCM Risk Management Services Inc. It has a number of earlier incarnations – it was formerly CGI Insurance Business Services, the Insurers’ Advisory Organization and Canadian Underwriters Association – but in each instance, the organization has been and remains owned or controlled by the insurance industry. 68 The primary purpose of the FUS is to establish the Dwelling Protection Grade (“DPG”) and Public Fire Protection Classification (“PFPC”) for each community in the country. The DPG rating generally applies to single family detached residences69 while the PFPC rating covers commercial, industrial and institutional buildings and/or districts, or multi-family residential complexes and generally is applied by the “commercial lines” arm of the insurance industry.70

Most residential homeowners and businesses carry fire and general perils insurance and any person with a mortgage is required to maintain such insurance by the mortgagee bank or financial institution. Where a community has a fire department which meets FUS standards for performance, the cost of insurance can be significantly decreased. Thus, one of the cost-benefit analyses that underpins the investment required to maintain an FUS-rated fire department is the trade-off between the taxes needed to pay for the department, versus the saving on insurance costs.

With a well-rated fire department, the saving in insurance premiums often will offset, in whole or in significant part, the costs of operating the department. For an individual with a house that is 67 Fire Underwriters Survey, “Review of Fire Protective Services for Fire Insurance Grading: City of Armstrong and Township of Spallumcheen” (2010) (the “FUS Review”). The FUS Review is not specifically dated, and does not stipulate when the survey was conducted, though internal references in the document indicate that the survey actually took place in 2009 (see p. 32, where the “Basic Fire Flow” requirements are discussed). 68 The most recent FUS review that we have seen – one which is in draft and dated November 2013 – indicates that the name of the organization has changed once again. It is now being called: “Opta Municipal Consulting Services”. 69 Under the FUS definitions, the DPG ratings generally apply to the following: “One- and Two-Family Detached Dwellings (buildings containing not more than two dwelling units) in which each dwelling unit is occupied by members of a single family with not more than three outsiders, if any, accommodated in rented rooms.” Also under this system, a “typical” detached dwelling is a maximum of 3,600 square feet in size. Fire Underwriters Survey website, “Terms of Reference”, http://www.fireunderwriters.ca/dpg_e.asp accessed on 20 September 2013. 70 Fire Underwriters Survey website, “What is the PFPC” at http://www.fireunderwriters.ca/pfpc_e.asp , accessed on 20 September 2013.


assessed at a replacement cost for insurance purposes of $300,000, a “protected” or “semi-protected” rating will generally result in cost saving on insurance of $1,000 a year or more. For commercial properties, significant reductions in insurance rates can be expected when the community obtains a PFPC rating of 7 or better.71 From the savings enjoyed on insurance, the tax cost of maintaining the service would then need to be deducted to determine the net direct financial benefit (or cost) of having a “rated” department.72

A complicating factor is that the ratings applied to a community are not necessarily uniform. FUS considers a series of issues (examined further below), which include distance from the fire hall and availability of water supplies. Thus, the benefits may not be equally enjoyed by all ratepayers. That situation certainly pertains in the Department’s fire service area, where the FUS rating varies depending on location.

Methodology Employed

Overall Ratings Weighting. The FUS ratings are weighted against the following four areas of assessment:73

Fire Department: 40% Water Supply: 30% Fire Safety Control 20% Fire Service Communications 10%.

The fire department assessment includes a consideration of apparatus, equipment, staffing, training, operations and administration, and the location/distribution of fire halls and fire companies. In this segment of its review, FUS analyzes the effectiveness of the fire department’s ability to extinguish fires in all parts of its fire protection area.

The "Water Supply" section looks at the hydrant system (if present), and considers issues such as water flow, supply reliability and system redundancy, based on criteria set out in its “Water

71Based on Fire Underwriters Survey, “Synopsis: Feasibility of Fire Protective Services within Apex Mountain Resort” (undated [2006?]), at p. 7. PFPC ratings of “8” and above are generally treated as unprotected. It should be noted that the FUS website information on the savings enjoyed by commercial operations from improved fire ratings has become much less specific than in the past. See: Fire Underwriters Survey website, “How the PFPC affects individual insurance policies” at http://www.fireunderwriters.ca/pfpc_e.asp , accessed on 20 September 2013. 72 The rating system is described in greater detail in the next section. The actual cost for insurance for any homeowner or business varies based on a number of factors. While the FUS fire grading for the area has a significant impact, a host of other considerations are also involved in the setting of insurance rates, including matters specific to the individuals or properties involved, or the competitive forces at work in the region. It is also important to note that the insurance value of a dwelling or business is not the same as its assessed value for tax purposes (as the latter incorporates the value of the land as well). 73 FUS Review, at p. 10.


Supply for Public Fire Protection”.74 Where no hydrant system is present or, (as is the case with the Department’s fire service area), where the hydrant system only covers a portion of the fire protection area, FUS looks at the ability of the fire department to access, load, transport and unload water against the risks faced in the non-hydrant protected area. In such cases, the assessment is usually considered as part of the “Fire Department” analysis.

The “Fire Safety Control” category covers fire prevention programs/public education, fire inspections and building/fire code and bylaw enforcement. FUS will look at whether local government is making effective use of these tools in managing the level of fire risk throughout the fire protection area.

The “Fire Service Communications” category involves an assessment of dispatch services, paging systems and radio communications.

Ratings System. As noted above, the FUS reviews involve two entirely separate rating systems – one for residential properties (DPG) and one for commercial/multi-family properties (PFPC). The DPG rating is calculated on a five-point numerical scale, while the PFPC rating is based on a 10 point scale. In both cases, a “1” is the highest rating achievable. In simplest terms, the goal of an FUS review is to provide insurance companies with a grading of fire protection services provided across a fire protection area.

Insurance companies use the grading rate provided by the FUS as one of a number of factors in determining local fire protection insurance rates. It should be emphasised that the system is quite fluid, and individual insurers can and will set rates based on considerations other than the FUS ratings (either higher or lower, depending on the insurer’s perception of actual risk, competitive concerns and other factors).75 It is up to individual insurance companies to determine what weight they give the FUS grading when determining insurance rates.

DPG Rating. In essence, for residential homeowners the rating system is from 1 – 5 (where “1” is best), with a split at “3”, where “3A” means there is an approved hydrant or water supply system, and “3B” means that the department relies on mobile water supplies. From the insurance industry’s perspective, the ratings for residential homeowners are generally treated as follows:

DPG Rating

Insurance Status Comment

5 Unprotected No savings on insurance from having a fire department.

74 FUS, “Water Supply for Public Fire Protection” (1999), available at: http://www.scm-rms.ca/docs/Fire%20Underwriters%20Survey%20-%201999%20Water%20Supply%20for%20Public%20Fire%20Protection.pdf 75 See a list of other factors on the Fire Underwriters Survey website, “How the PFPC affects individual insurance policies” at http://www.fireunderwriters.ca/pfpc_e.asp , accessed on 20 September 2013.


DPG Rating

Insurance Status Comment

4 Semi-protected Some savings on insurance likely will be enjoyed; in some regions, this rating and “3B” are treated as essentially equivalent.

3B Semi-protected This is usually the rating level at which significant cost savings on insurance are enjoyed. This is usually the highest rating available in areas which are not hydrant-protected.

3A; 3B(S)76

Protected

Progressively greater savings on insurance. Fully protected status typically means a savings of 50-60% on insurance costs.

2 Protected

1 Protected

Table 4: FUS Ratings

In general, FUS estimates that a community which achieves fully protected status can enjoy savings on insurance of about 60% versus communities which are “unprotected”.77

There are some fundamental location and distance requirements for an area to receive a protected or semi-protected rating:

residents must live within 8 kilometres by road of a fire hall (i.e., the measurement is based on distance travelled on the existing road network, not in a straight line from the fire hall); and

for hydrant protected areas, the residence must be within 300 metres of a fire hydrant (or else the residence is classed based on the community's "non-hydrant protected" rating).78

Properties which are more than eight kilometres by road from a fire hall are treated as DPG 5 (unprotected). There are portions of the Department’s fire protection area which are more than 76 A rating of 3B(S) is an FUS accreditation for tanker shuttle capability, where a department is able to demonstrate its ability to maintain a specified water flow for a stipulated period of time, using tanker units. It applies to areas which are not hydrant-protected, and must be periodically renewed. This specialty rating is treated by most insurers as being the equivalent of a “DPG 3A” (fully protected) rating. See FUS Review p. 83. 77 FUS Review, p. 83. 78 This distance can be extended to 600 metres if a department is qualified by FUS as capable of “large diameter hose-lay”. See: FUS, Accreditation of Alternate Water Supplies for Public Fire Protection (December 2010), at http://www.fireunderwriters.ca/doc/FUSBulletin-2010.12.10-AlternativeWaterSupplyAccreditation.pdf, accessed on 20 September 2013.


eight kilometres by road from the nearest fire hall – any residences in this area are, theoretically at least, treated as “unprotected” for insurance purposes (individual insurance companies may choose to treat the risk differently).

PFPC Rating. The PFPC rating, which is determined at the same time as the DPG rating, is based on similar factors. The impact of an improved classification varies with the industry – higher risk industries enjoy greater savings at certain levels – for example, as the PFPC rating improves from 8 to 7.79 In the context of other work we have undertaken, we have reviewed information from FUS which suggests that for each level of improvement in the PFPC classification, the average commercial insurance cost for a typical area will drop by approximately 4 – 6%.

The following factors are integrated into the PFPC assessment: 80

1. Fire Risk, including analysis of required fire flows for individual buildings, building groups and zones of similar risk (Fire Flow Demand Zones) of the community;

2. Fire Department, including apparatus, equipment, staffing, training, operations and geographic distribution of fire companies;

3. Water Supply system, including source to distribution analysis, redundancy factors, condition and maintenance of various components, and storage volume;

4. Fire Prevention and Fire Safety Control programs including public education, codes/bylaws implementation and use of codes/bylaws in managing the level of fire risk throughout communities; and

5. Emergency Communication systems, including telephone systems, telephone lines, staffing, and dispatching systems.

The PFPC rating is essentially a benchmarking against various standards or requirements in each category and in relation to other communities.

For a commercial property, the application of the rating system depends on the distance from the fire hall and, in hydrant protected areas, distance from a fire hydrant. This can result in “split ratings” for a fire protection area. The FUS expresses it this way: 81

"In many communities, FUS develops a split classification (for example, 5/9). Generally, the first class, (Class 5 in the example) applies to properties insured under Commercial

79 See FUS Review, Appendices, p. 220/221 (pdf), Table 3, “Manufacturing (Wood)”, which shows a 17% insurance cost saving for this industry when moving from a PFPC 8 to PFPC 7. This contrasts with 3 – 4% savings enjoyed by less risky undertakings. 80 From: Fire Underwriters Survey website, “How the PFPC grading system works”, at http://www.fireunderwriters.ca/pfpc_e.asp, accessed on 20 September 2013. 81 From: Fire Underwriters Survey website, “Split Classifications”, at http://www.fireunderwriters.ca/pfpc_e.asp, accessed on 20 September 2013.


Lines within five road kilometres of a fire station and within 150 metres of a fire hydrant. The second class (Class 9 in the example) applies to properties insured under Commercial Lines within five road kilometres of a fire station but beyond 150 metres of a hydrant. FUS assigns Class 10 to properties insured under Commercial Lines that are located beyond five road kilometres from the responding fire station."

FUS Rating of Armstrong and Spallumcheen

In general, the City and the Township fared reasonably well in the FUS review, though the commercial ratings did fall by one grade within the City. Although the FUS Review is somewhat opaque on this point, there are split classifications for both the DPG and PFPC ratings, based on distance from the fire hall and whether or not the property is located in a hydrant-protected area.82

The following DPG and PFPC ratings were assigned:83

DPG previous

DPG 2009/10

Comments

Armstrong Hydrant Protected Areas

3A 3A Hydrant-protected Area – detached dwellings within 300m of a fire hydrant [and 8 km of the Department’s Fire Hall]

Spallumcheen Hydrant Protected Areas

3A 3A Hydrant-protected Area – detached dwellings within 300m of a fire hydrant [and 8 km of the Department’s Fire Hall]

Non-hydrant protected areas of Spallumcheen

3B 3B Fire station protected area – detached dwellings within 8 km by road of the Department’s Fire Hall [but no hydrants]

Remaining areas of Spallumcheen

5 5 Unprotected – detached dwellings NOT within 8 km by road of the Department’s Fire Hall

Table 5: Armstrong/Spallumcheen FUS DPG Rating

The FUS Review found that all residential properties within the City were within 300 metres of a hydrant and that all commercial properties were within 150 metres of hydrant.84 Although not entirely clear on this point, the ratings given apply only to residential properties which are within 8 kilometres by road from the fire hall and to commercial properties which are within 5 kilometres by road. The concern about this issue is raised on page 77 of the FUS Review, which notes as follows:

82 The review gives a blanket rating, without expressly discussing areas which are not covered or are to be treated as unprotected. See FUS Review at p. 76. 83 FUS Review, at p. 76. The chart is based on the chart in the FUS Review and additional discussion from that report. 84 FUS Review at p. 63, under the heading: “The City of Armstrong”.


“The most significant concern for this assessment is the large number of properties both residential and commercial that are beyond 8 and 5 road km [respectively] of the fire station. The residential properties that are over 8 km by road from the fire station and the commercial properties that are over 5 km (this includes the Spallumcheen Industrial Park) by road from the fire station are considered unprotected.”

With respect to the Township, the FUS Review only discussed three water improvement districts (Eagle Rock, Laird and Otter Lake), of the 11 water improvement districts that exist within Spallumcheen.85 Notwithstanding the limited nature of their review, and the concerns expressed in recommendation 8.9.1, the FUS Review concluded:86

“The 2010 assessment has determined that the Township of Spallumcheen water system now qualifies for recognition within the fire insurance grading.”

This rating will only apply, obviously, if a hydrant system also is present. The commercial fire insurance grading may be summarized as follows: PFPC

previous PFPC 2009/10

Comments

Armstrong Hydrant Protected Areas

6 7 Hydrant-protected Area – commercial properties within 150m of a fire hydrant and 5 km of the fire hall

Spallumcheen Hydrant Protected Areas

9 7 Hydrant-protected Area – commercial properties within 150m of a fire hydrant and 5 km of the fire hall

Spallumcheen – non hydrant protected area

9 9 Fire station protected area – commercial properties within 5 km by road of the Department’s fire hall [but no hydrants or more than 150 metres from a hydrant]

Remaining Spallumcheen Fire Protection Area

10 10 Unprotected – commercial properties further than 5 km by road of the Department’s fire hall

Table 6: Armstrong/Spallumcheen FUS PFPC Rating

85 The FUS Review referred to 11 water improvement districts within the Township (see p. 74); the Township’s website, however, currently refers to 14 separate water improvement districts. See: http://www.spallumcheentwp.bc.ca/siteengine/activepage.asp?PageID=35, accessed on 17 November 2013. 86 FUS Review at p. 76. The FUS Review wrongly attributes responsibility for the water system to the Township, whereas the improvement districts are actually a separate and independent level of government.


The City’s commercial fire insurance grade rating dropped from a 6 to 7. Conversely, for commercial properties in Spallumcheen that are both within a hydrant protected area and are within 5 kilometres of the fire hall, the insurance grading improved by two steps from 9 to 7. Commercial properties which are more than 5 kilometres from a fire hall would be treated as unprotected.

Review of Principal FUS Recommendations

The most significant recommendations identified by the FUS Review in 2010 were as follows: 87

Importance Recommendation Report page

Critical Improve Response Coverage Area (Recommendation 8.4.1) 37 Critical Acquire Additional Apparatus (Recommendation 8.5.1) 45 High Improve Available Fire Force (Recommendation 8.9.1) 51 High Improve Water Improvement Districts Systems (Recommendation

11.4.1) 73

High Develop Alternative Water Supply Plan (Recommendation 11.5.1) 74

Table 7: FUS Recommendations

Each of these recommendations will be considered in greater detail below. When consideration is given to how such recommendations should be implemented or acted upon, the City and Township Council’s need to consider which represents both the most significant operational improvement as against the cost of implementation.

Response Coverage Area. The FUS Review notes that the fire hall is well located for responses within the City, but that a “significant number of commercial risks are beyond road 5 km and a significant number of residential risks beyond road 8 km of the Fire Hall.”88 Essentially, this recommendation (which cross-references recommendation 8.5.1), calls for the establishment of a second fire hall in the southern area of the Department’s response zone to provide coverage to existing commercial and residential properties. We have also identified the need for the City and Township to plan for a second hall, particularly given that there is planning for material residential growth in the southeast portion of the fire protection area.

The cost and complexity of establishing a second fire hall are material. Aside from the obvious and significant capital outlay and on-going operational costs of a second location, the need to provide staffing can be challenging (though it may be possible to designate sufficient members from the existing hall to the new hall, to qualify for FUS purposes).89 The improvement in fire

87 We have extracted the recommendations considered either “Critical” or “High” as summarized on p. 7 of the FUS Review. 88 FUS Review p. 38. 89 There needs to be not fewer than 15 members assigned from a fire hall for FUS purposes. The Department currently has some 38 members on staff – depending on where they are living and working, it


insurance rating for the affected areas will at least partially offset these additional outlays. This concept needs to be built into the Department’s long term planning.

Adding Additional Apparatus. The FUS Review found that the Department was “considered deficient by 800-1200 Imperial gallons/minute (“IGPM”) or 24 – 36% in the area of apparatus pumping capacity” and that additional pumper units should be acquired to overcome this deficit.

We would make two observations about this recommendation. First, if a second hall were established, it clearly would require both a pumper and tanker unit. Planning for such additional equipment would need to be factored into any consideration of the establishment of a satellite hall.

Second, the principal driver in the FUS calculation is their determination of the applicable “Basic Fire Flow” – essentially, a measure of the Department’s ability to pump water – which they define as follows:

“The intent of setting the final required fire flow in this manner is not to provide adequate water supplies for the worst case scenarios, but rather to provide adequate water supplies for fire fighting in the majority (90%) of structure fires (not including WUI [Wildland Urban Interface fires]).”

On this point, the FUS Review does not provide any details as to how their calculations were actually arrived at; rather, after a general description of the types of structures and risks present and processes and general considerations that they follow to determine the necessary fire flows, they conclude as follows:90

“The Basic Fire Flow for the Armstrong/Spallumcheen Fire service area in 2009 is 3100 IGPM and 3500 IGPM within the Spallumcheen Industrial Park (including Tolko Industries and Rogers Foods) with a risk category from the Table of Effective Response of 3(b) and a recognized water supply.” [Emphasis in the original]

Essentially, then, there are two ratings: 3500 IGPM for industrial park, and 3100 IGPM for the rest of the fire protection area. The FUS Review is not a model of clarity on how it arrived at these determinations. Indeed, we would suggest that there actually is a good argument for breaking the assessment into at least three categories, rather than just two. The FUS Review itself notes:

“[The] Armstrong/Spallumcheen Fire Service Area is made up primarily of widely spaced single family dwellings with the village [sic] itself being the exception having the majority of commercial and higher density properties.” [Emphasis added]

may be possible to assign sufficient numbers from the main hall to the second location. It also would be advisable, however, to step up recruitment of additional volunteers if a second location is added. 90 FUS Review at p. 33. “IGPM” means “Imperial Gallons per Minute”.


The reference to the “village” presumably is to the core urban area of the City. Ideally, therefore, the FUS Review should have calculated at least three coverage zones: the industrial park, the core “urban” area, and the remaining portions of the fire protection area.91 As it stands, 3100 IGPM for much of the coverage zone is almost certainly significantly higher than is required to provide adequate protection to “widely spaced single family dwellings”.92

Staffing levels. The FUS Review found the Department materially deficient in its staffing levels. The conclusion was:93

“The Benchmark Fire Force is 30 career fire fighters and Armstrong/Spallumcheen has a credited Available Fire Force of 8.

The Armstrong/Spallumcheen Fire Department is credited 27% in this area of the fire insurance grading.”

The arrival at this calculation, however, is driven by two principal concepts. First, that the fire flows which they estimate are required (3100 IGPM and 3500 IGPM), demands the presence of four pumper companies and one ladder company. In the FUS calculations, each company has six firefighters.94

The second issue is their approach to determining equivalency of volunteer to career firefighters, when calculating the available number of firefighters, which they refer to as the “FFEU".95 To determine the FFEU of the volunteers, FUS takes the average turn-out for calls and divides it by three (so, if an average of 12 volunteer firefighters turned out for every call, they would be considered equivalent to having four career firefighters on duty). This calculation appears to be based solely on FUS's estimate of availability, and has nothing to do with considerations of actual performance. In addition, under the FUS methodology, “auxiliary” or volunteer firefighters can never count for more than 50% of the required number of firefighters.96

In the case of the Department, they estimated that half of the Department’s volunteer members and officers would turn out for a structure fire. Based on the Department’s staffing levels in

91 It is not unusual for such calculations to be made: we have seen FUS reports with up to 9 or 10 different coverage zones identified. 92 The requirements for such structures are more likely in the 1,000 IGPM range, than the 3,100 IGPM range. Essentially, the entire fire protection area has been rated as equivalent to “3(b) – Seriously exposed tenements. Institutional. Shopping Centres. Fairly large areas and fire loads, exposures.” See: Table of Effective Response, FUS Review, p. 30. 93 FUS Review, at p. 52. 94 FUS Review at p. 50. 95 FFEU means "Fire Fighter Equivalent Units". The determination of the FFEU is a fairly complex calculation based on a series of issues, including volunteer turn out, available career members, time of day, etc. See pp. 49 – 51 of the FUS Review for a detailed discussion. 96 FUS Review at p. 52.


2009, they estimated that slightly over 22 firefighters would be available for each structure fire. In calculating the FFEU, this number was divided by three, generating an estimated “FFEU” (when including one career firefighter) of 8 firefighters, against the required force of 30 firefighters.

The FUS Review aptly notes that this type of deficiency is not unusual for communities such as the City and Township.97

The reality for the City and Township is that, for the foreseeable future, they will be dependent on volunteer or paid-on-call members. As such, the best that can be achieved is to meet approximately 50% of the required fire force.

Improve Water System and Water Storage. The FUS Review concluded that the City’s water supply system was “well designed and installed”. They noted, however, that they had looked at “three of a possible eleven” Water Improvement Districts in Spallumcheen, and found that the systems were “not as well designed”, with water storage and some water flow deficiencies.98 As noted above, however, they nevertheless have considered that, where hydrants are provided, the water systems in Spallumcheen meet FUS requirements (see discussion above).

We recognize that the Township has been grappling with the challenges posed by its water supply systems for more than 20 years.99 As the systems are modernized, clearly the requirements for firefighting need to be taken into account and recommendations and comments in the FUS Review, incorporated into future planning.

Budgets and Finances The Department has a reasonably sophisticated approach to its budgeting: it runs regular comparisons against previous years’ expenditures and sets out a five-year budget cycle. The Department’s operating costs have risen from the low $300,000s to about $400,000 over the course of the last several years: Operating Costs to Each Municipality100

2010: $317,615

97 FUS Review at p. 52. 98 FUS Review at p. 74. 99 The earliest report we found was Urban Systems Ltd., District of Spallumcheen: Water Services Study (October 1992). Many of the issues flagged or discussed in that report are still being addressed. See: Township of Spallumcheen, Minutes of Committee of the Whole Meeting (25 June 2012), which involved a workshop reviewing the issues and challenges of managing the water systems within the Township. 100 This is the amount of the net operating costs, including any surplus, paid by each of the City and Township for the year in question, or as projected into the future.


2011: $299,046 2012: $345,436 2013: 418,649 (budget) 2014: 387,507 (estimate) 2015: $392,514 (estimate)

There were significant operating surpluses in each of the years 2010 – 2012. The costs for 2013 included the cost of this review, which explain the apparent discrepancy to prior and succeeding years. Under the terms of the cost sharing arrangement between the City and the Township for their various shared services (the “Cost Sharing Agreement”), the operating costs are divided based on the relative assessed values of improvements in each municipality.101 The major cause of inter-annual swings in the Department’s budgets is capital expenditures. The Department is contemplating a major renovation or upgrade of its existing fire hall. It also has a schedule for replacing apparatus as it ages. The investments required for both items are material and result in a dramatic swing in total budget from year to year. The actual and budgeted capital expenditures for the years 2010 – 2016 are set out below:

2010: $13,948 2011: $4,748 2012: $10,699 2013: $315,002 (budget) (apparatus) 2014: $1,641,000 (estimate) (fire hall renovation, Jaws of Life) 2015 $11,000 (estimate) 2016: $1,158,724 (estimate) (apparatus)

The operating costs for the Township and City can also be compared with similar jurisdictions as shown in the following table. In terms of administrative positions102 the Department can be considered as under-resourced when compared to other similar fire departments and this is consistent with our recommendation to at a minimum create a full time fire chief. The capital and operating costs are also shown for the benchmark jurisdictions in the following table and from this it can be shown that the Department is significantly below the median in terms of operating cost.

101 Memorandum of Agreement between the City and Township, dated 6 February 1984, section 3(a). 102 Source: the website for each of the respective fire departments with the exception of Quesnel which was obtained from the department.


Jurisdiction 2011

Census103 Fulltime Officers

Paid on call

2013 Operating

2013 Capital

Parksville 11,977 3 32 $879,710 $177,000

Sooke 11,435 2 50 $955,985 $100,000

Summerland 11,280 3 30 $747,805 $126,000

North Saanich 11,089 3 38 $820,000 $105,000

Williams Lake 10,832 3 40 $1,414,660 $20,000

Coldstream 10,314 0 42 $683,298 $382,185

Quesnel 10,007 5 38 $926,278 $685,000

Spallumcheen / Armstrong 9,870 1 38 $418,649 $315,002

Sechelt 9,291104 4 40 $908,000 $282,000

Median 10,832 3 38 $879,710 $177,000

Average 10,677 2.7 38 $861,598 $243,576

The capital costs are allocated on a “60/40” basis between the Township and City, respectively under the Cost Sharing Agreement. It does not appear that the Department accumulates any material reserves to help smooth out the costs of major capital investments. Rather, it seems to transfer back surpluses to each municipality.105 It also does not appear to use financings (such as can be obtained through the Municipal Finance Authority) to amortize the cost out over additional budget cycles. The result is that the annual budget is prone to substantial swings from year to year. In relation to its apparatus, the Department has identified the life-cycle of each of its vehicles in its forward budget planning. This life-cycle is primarily based on the requirements set out by the Fire Underwriters, who have specified as follows:106 Age Major cities Medium sized cities or where

there is significant fire risk Small communities & rural areas

0-15 years First line First line First Line 16-20 years Reserve Second Line First Line 20-25 years No Credit No Credit or Reserve No Credit or Second

Line

103 BC Civic Info http://www.civicinfo.bc.ca/ 104 The population for Sechelt may be increased by 797 as this figure is reflected separately in the 2011 figures from Stats Canada at http://www12.statcan.gc.ca/census-recensement/2011/dp-pd/hlt-fst/pd-pl/Table-Tableau.cfm?LANG=Eng&T=304&SR=1&S=51&O=A&RPP=9999&PR=59&CMA=0 105 Between 2010 – 2012, some $150,000 in capital and operating surpluses appear to have been transferred back based on the information in the “Other Transfers” tab of the Department’s budget. 106 Fire Underwriters Survey, Insurance Grading Recognition of Used or Rebuilt Fire Apparatus (2007), at p. 3 (hereafter: FUS, Apparatus Recognition).


Age Major cities Medium sized cities or where there is significant fire risk

Small communities & rural areas

26-29 years No Credit No Credit or Reserve No Credit or Reserve 30 years + No Credit No Credit No Credit Under the FUS system, the City and Township likely would be classified as “small communities” (though that would need to be expressly confirmed with them). The Department replaced one piece of apparatus in 2013 and has scheduled the following replacements over the next 10 years: Year Apparatus Budgeted Amount 2013 Ford Rescue Truck $303,002 2016 Pierce Pumper/Squirt $765,000 2018 Freightliner Tanker $260,000 2020 Pick-up truck $50,000 2022 International Tanker $260,000 Total $1,638,002 In aggregate, then, more than $1.6 million has been or will be invested in new apparatus over the course of a decade (including amounts spent in 2013). Given the predictability of the replacement cycle for apparatus, it may be worth considering setting up a vehicle replacement reserve based on each vehicle’s anticipated lifespan, to help reduce inter-annual budget variability. It should be noted that the Fire Underwriters do permit departments in small to medium sized communities to apply to extend the grading recognition status of older apparatus. In that regard, they note as follows:107

“Exceptions to age status may be considered in a [sic] small to medium sized communities and rural centres conditionally, when apparatus condition is acceptable and apparatus successfully passes required testing.”

Under the FUS system, it appears that the testing required is an annual “Acceptance Test” as specified under NFPA 1901, Standard for Automotive Fire Apparatus. By utilizing this approach, it may be possible to extend the lifespan of a particular piece of apparatus by a further five years (so that replacement does not occur until the apparatus is 25 years old).108

107 FUS, Apparatus Recognition, p.3, note 2. 108 FUS, Apparatus Recognition, p. 5, table 2.


Some caveats should be noted. FUS requires that municipalities which wish to extend the usable life-span of their apparatus to make application to FUS; they also appear to reserve the right to refuse to grant credit to such vehicles:109

“Due to municipal budget constraints within small communities we have continued to recognize apparatus over twenty years of age, provided the truck successfully meets the recommended annual tests and has been deemed to be in excellent mechanical condition.”

They go on to note, however: 110

“Apparatus exceeding 20 years of age may not be considered to be eligible for insurance grading purposes regardless of testing. Application must be made in writing to Fire Underwriters Survey for an extension of the grade-able life of the apparatus.”

If the City and Township agree to establish a second hall to provide better coverage to the southern portion of the fire protection area, there may be some benefit in extending the life of some apparatus beyond the usual 20 years. This will require more detailed consideration with the Fire Underwriters, but could be factored into the planning for a second hall.

109 FUS, Apparatus Recognition, p. 2 110 FUS, Apparatus Recognition, p. 5, table 2, note 4.


Summary of Recommendations Recommendation 1: The Township and the City review and revise the underlying bylaw

structure which establishes and empowers the Department to operate, based on the recommendations set forth above. In particular, the revised bylaw should:

(a) expressly recognize the joint nature of the service which has

been created (e.g., by creating a joint municipal service under section 14 of the Charter , or a joint commission with sufficient delegated powers);

(b) use consistent terminology when referring to the Department;

(c) update and make consistent the manner in which the Fire Chief is appointed;

(d) define the Fire Chief’s role and principal responsibilities in managing and overseeing the Department;

(e) update certain critical definitions, such as the term “incident”, to ensure that the Department is expressly empowered to act at all incidents to which it is required to respond or has responded (including requests for assistance from the BCAS);

(f) update the description of the Department’s powers and authority;

(g) review and update the terms under which the Department is authorized to operate outside of its ordinary jurisdiction, including reviewing the appropriate WMB operational guideline and entering into a permissive agreement with the RDNO that enable the Department to operate outside of its ordinary fire service area; ;

(h) review the relationship between any existing fire society and the Department and ensure that this role is properly reflected in the underlying bylaw structure (with such updates to the society’s constitution as may be necessary or appropriate to reflect any changes to the relationship); and

(i) review and update the language regarding the Department’s responsibility for conducting of fire inspections


Recommendation 2: For administrative convenience and ease of review, when updating the bylaws, the Township and the City should consider separating the Department’s establishment, operational responsibilities and authority from the regulatory portions of the bylaw such as open air burning.

Recommendation 3: That the Department be provided an additional full time member to

provide additional management support for training, pre-planning and regular maintenance.

Recommendation 4: The Department’s policies on the establishment and operation of

its Joint Committee be reviewed in light of the comments made above, and against the requirements in the WCA and be revised as required. In particular, one of the firefighters should be appointed as a co-chair of the Joint Committee, along with the Safety Officer and the terms of reference of the Joint Committee be reviewed against the requirements of section 130 of the WCA.

Recommendation 5: The Department add a section addressing the implementation and

operation of its WHMIS program, in accordance with sections 5.3 – 5.19 of the Regulations made under the WCA.

Recommendation 6: The OH&S Program be updated to include specific cross-

references to applicable requirements under the WCA and Regulations (or applicable WorkSafe BC policies), and to other Department policies and specific operational guidelines.

Recommendation 7: The annual review of the OH&S Program, as required by Part 12,

be noted on the document, even if no substantive changes were made.

Recommendation 8: The language used in the OH&S Program should track the

statutory language, where it reflects a specific obligation or requirement in the WCA or Regulations. Additional explanatory text can be included where required or advisable.

Recommendation 9: That the Department should identify all areas where there is

insufficient radio coverage for paging or voice and provide additional equipment to eliminate these.

Recommendation 10: That the Department utilize mobile workstations in each response

unit to provide an electronic ‘dispatch ticket’ with the incident


address, a map view of the area, as well as pre-plan and hazard information.

Recommendation 11: That the Department network its existing and future computers

and to provide a regular, off-site backup for all data. Recommendation 12: That the Department ensure that incident reports are completed

with all information including all fire fighters who attended. Recommendation 13: That the Department install a backup generator for the fire hall. Recommendation 14: That the Department develop a complete inventory of all industrial

hazards within its response area, including those carried by the railroads and develop response plans for each.

Recommendation 15: That the Department immediately increase the number of

firefighters certified to operate all fire apparatus. Recommendation 16: The Department should record the work needed, maintenance

completed, test results, parts used, and apparatus information either using FDM system (which the department currently uses) or one of the many other commercial programs that are available.

Recommendation 17: The department have qualified members service the apparatus

more frequently and include pressure washing/steam cleaning of the suspension and undercarriage of the apparatus.


The department should provide Emergency Vehicle Technician training for the members doing the maintenance work.

Recommendation 18: The Department not undertake offensive interior operations when

dealing with fire involved structures until it has met the next two recommendations.

Recommendation 19: The Department should develop written operational guidelines dealing with all principal fire ground operations, including offensive interior attacks. The written operational guidelines for interior operations, among other things, should specify the minimum


levels of training and qualification for fire attack and primary search teams involved in such operations.

Recommendation 20: The Department conduct a formal internal assessment of their training records to review the actual NFPA training levels achieved by each of their members, and to clearly identify each member who is qualified to undertake offensive interior operations (for which they have sufficient records to support this position) as noted in recommendation 19. The Department should develop a method of identifying these members such that they can readily be identified by the Fire Chief and an Incident Commander at a working incident. Where necessary, the Department and its officers should circumscribe their emergency incident operations to the training levels of the members present at an incident, given that firefighters and fire officers must adhere to the limits of their actual training.

Recommendation 21: The Department should develop written training outlines indicating the training its members are expected to achieve for the various roles, tasks and tactics they may undertake on the fire ground, such as the different levels of firefighter – recruit, basic, and senior firefighter, firefighters capable of interior operations as a team member, as a team leader, fire officers (Lieutenants and Captains) and chief officers as team leaders, division and group supervisors, and incident commanders (this could be done in conjunction with the previous recommendations).

Recommendation 22: The Department should develop a written training outline indicating all courses available to its members; specifically those that are additional – over and above the NORD Basic Program.

Recommendation 23: The Department should develop written performance evaluation processes (knowledge testing and skills checklists) for all programs that are additional to the NORD Basic Program as well as for LF-I and LF-II to enable the Department to assess and evaluate each member’s progress and determine when he or she has successfully achieved the required or expected standard of performance to ensure consistency in all firefighting skills.

Recommendation 24: The Department should conduct a formal internal assessment of their training records to clearly identify each member who is qualified to drive and or operate fire apparatus (for which they have sufficient records to support this position). From that review, the Department should develop a list of these members such that


they can be readily identified, and the Department limit the emergency operation of the fire apparatus to those members with the appropriate levels of training.

Recommendation 25: The Department should develop specific pre-requisite criteria for members to attend LF-I, LF-II and LF-III, as well as rapid intervention team, training programs. These criteria should include that all participating members have met the requirements of the NORD Basic Program and confirm that, prior to members being allowed to conduct search and rescue operations under live fire conditions, they must have taken the training to do so in a non-live fire environment.

Recommendation 26: The Department should develop written operational guidelines that would identify the minimum qualifications and proficiency criteria for the role of live fire instructor at any live fire training event, including for live fire training in acquired structures. The Department should review the qualifications of all officers expected to instruct live fire training sessions to ensure that each meets these requirements and expectations.

Recommendation 27: The Department continue with the implementation of the FDM RMS in order to provide an effective RMS solution for training records. The Department should immediately begin utilizing the FDM RMS to enable them to maintain a comprehensive set of training records indicating all training that has already been delivered to each member in addition to all subsequent training provided. This approach will enable the Department readily to confirm the operational readiness of each of their firefighters. The implementation plan will need to take into account the training and administrative support that the Department will require to utilize the program and input their existing records and manage their records into the future.

Recommendation 28: The Department review and inventory all training related records to be maintained. Once the inventory has been completed, the Department should develop standard forms for each subject area to be used by all members. These forms should align with the computerized record keeping system to ensure consistency and ease of data input. The Department should also plan to maintain back-up copies of each record, once electronic versions are available.


Recommendation 29: The Township and City in consultation with the Department assess the need for the creation of the position of a Station or Administrative Officer, where the primary responsibility will be overseeing Department record keeping. It is suggested that this position be paid the hourly paid-on-call rate, based on the time required to update and then regularly input and maintain Department records.

Recommendation 30: That the City and Township, in consultation with the Department, undertake a fire hall upgrade study including a review of future needs and spatial requirements.

Recommendation 31: Based on the outcomes of the above noted study, the City and Township should consider upgrading the current fire hall.

Recommendation 32: That the Department commence planning in the near term for a second fire hall to provide coverage for the commercial/industrial properties as well as residential properties in the south part of the fire response area.


Priorities High

Recommendation 3 with regard to an additional full time member/Fire Chief Recommendation 9 with regard to radio coverage deficits Recommendation 15 with regard to increasing the number of firefighters certified to

operate all apparatus Recommendations 18, 19, 20, 21, 22, 23, 24, 25 and 26 with regard to training and

authorization for interior operations Recommendations 27 and 28 with regard to training records Recommendations 30 and 31 with regard to upgrading the Armstrong fire hall

Medium

Recommendations 1 and 2 regarding revision of the bylaws Recommendations 4, 5, 6, 7 and 8 with regard to OH&S Recommendation 10 with regard to the implementation of mobile workstations Recommendation 11 with regard to networking and offsite backups of data Recommendation 12 with regard to ensuring incident reports include the names of all

attending fire fighters Recommendation 13 with regard to installing a backup generator for the fire hall Recommendation 14 with regard to developing a complete inventory of industrial

hazards Recommendation 29 with regard to establishing a position of station or administrative

officer Recommendation 32 with regard to implementing a second fire hall in Spallumcheen

Low

Recommendation 16 with regard to keeping an electronic record of all apparatus maintenance

Recommendation 17 with regard to more frequent cleaning of the apparatus


Risk/Benefit Analysis with Timeline Recommendation Priority Timeline Risk Benefit

1 The Township and the City review and revise the underlying bylaw structure which establishes and empowers the Department to operate, based on the recommendations set forth above.

Medium 2014 to start

2015 to complete

Lack of clarity regarding authority to respond to certain incidents; some language in the bylaw requires clarification or correction.

Ensuring the Department has the authority it requires and that the bylaw covers its operations and administration. Clarifies issues related to the joint nature of the Department shared between the Township and the City.

2 For administrative convenience and ease of review, when updating the bylaws, the Township and the City should consider separating the Department’s establishment, operational responsibilities and authority from the regulatory portions of the bylaw such as open air burning.


2015 to complete

Lack of clarity regarding authority to respond to certain incidents; some language in the bylaw requires clarification or correction.

Ensuring the Department has the authority it requires and that the bylaw covers its operations and administration.

3 That the Department be provided an additional full time member to provide additional management support for training, pre-planning and regular maintenance.

High 2014 to start

There is current a lack of capacity to manage each of these issues; this becomes critical given the series of recommendations with regard to training such as recommendations 18, 19, 20, 21, 22, 23, 24, 25 and 26 with regard to training and authorization for interior operations and recommendations 27 and 28 with regard to training records

Provision of an addition member will allow the Department to address the large number of recommendations with regard to training and fire operations. Addressing these issues will increase safety for the firefighters and public and reduce risk to Spallumcheen and Armstrong.


Recommendation Priority Timeline Risk Benefit

4 The Department’s policies on the establishment and operation of its Joint Committee be reviewed in light of the comments made above, and against the requirements in the WCA and be revised as required. In particular, one of the firefighters should be appointed as a co-chair of the Joint Committee, along with the Safety Officer and the terms of reference of the Joint Committee be reviewed against the requirements of section 130 of the WCA.


Existing approach may constitute a technical breach of OH&S requirements.

Will better enable the Department to ensure its compliance with its OH&S obligations; improves risk mitigation.

5 The Department add a section addressing the implementation and operation of its WHMIS program, in accordance with sections 5.3 – 5.19 of the Regulations made under the WCA.


Existing program does not fully meet the requirements under the Workers Compensation Act (BC) and regulations.

Improves compliance with OH&S requirements; risk mitigation

6 The OH&S Program be updated to include specific cross-references to applicable requirements under the WCA and Regulations (or applicable WorkSafe BC policies), and to other Department policies and specific operational guidelines.


OH&S program requires annual review

Cross-referencing makes review easier; improves ability to update the OH&S program to meet changing requirements.

7 The annual review of the OH&S Program, as required by Part 12, be noted on the document, even if no substantive changes were made.


Lack of documented compliance with WCA requirements may pose a risk in a review by WorkSafe BC.

Will better enable the Department to ensure its compliance with its OH&S obligations; risk mitigation.

8 The language used in the OH&S Program should track the statutory language, where it reflects a specific obligation or requirement in the WCA or Regulations. Additional explanatory text can be included where required or advisable.


Existing OG does not adequately reflect existing statutory/regulatory requirements.

Ensures that the obligations to be met are clearly set out in the OH&S Policy. Will better enable the Department to ensure its compliance with its OH&S obligations.



9 That the Department should identify all areas where there is insufficient radio coverage for paging or voice and provide additional equipment to eliminate these.

High 2014 to start

2015 to develop a technical solution

There is a risk that a page for an emergency may be missed, or a call to dispatch from the scene for a critical message may be missed

Improving voice radio and paging coverage to eliminate dead spots will improve safety for firefighters and the public and will reduce risk.

10 That the Department utilize mobile workstations in each response unit to provide an electronic ‘dispatch ticket’ with the incident address, a map view of the area, as well as pre-plan and hazard information.

Medium Budget for 2015

Failure to immediately respond based on a lack of clarity regarding the location, or lack of knowledge regarding pre-plans would increase the risk for potential litigation

Improving response time by providing on-board mapping and hazard information will result in a more prompt response and will reduce the risk associated with any delays.

11 That the Department network its existing and future computers and to provide a regular, off-site backup for all data.


2015 to complete

Lack of an off-site backup of data could lead to a critical and unrecoverable loss of incident and inspection information

Provision of a secure off-site backup for all records will prevent an unrecoverable loss of data.

12 That the Department ensure that incident reports are completed with all information including all fire fighters who attended.

Medium 2014 to start, then ongoing

Lack of a complete record of all incidents could lead to a lack of clarity as to which members attended as well any hazards to which they have been exposed

Provision of a complete historical record of all information required to protect Spallumcheen and Armstrong from litigation that may stem from incomplete or incorrect information.

13 That the Department install a backup generator for the fire hall.

Medium Budget for 2015

Best practices for public safety buildings requires them to be powered independently of the normal grid for sustained operations

Installation of a backup generator for critical electrical requirements in the fire hall will ensure continuous operation when required.



14 That the Department develop a complete inventory of all industrial hazards within its response area, including those carried by the railroads and develop response plans for each.

Medium 2015 to start then ongoing

At the present time the Department has not developed pre-plans for all properties.

Development of comprehensive pre-plans will aid critical decision making at emergency scenes optimizing the fire attack and minimizing risk for the District.

15 That the Department immediately increase the number of firefighters certified to operate all fire apparatus.

High 2014 to start with goal to have a minimum number available at all times

Lack of sufficient numbers of trained emergency vehicles operators may delay or prevent response which may compromise a fire attack or rescue and exposure the Department to litigation

Increasing the number of firefighters trained to operate all apparatus in the fleet will ensure the most timely response to all emergency incidents.

16 The Department should record the work needed, maintenance completed, test results, parts used, and apparatus information either using FDM system (which the department currently uses) or one of the many other commercial programs that are available.

Low 2015 to define needs

Lack of complete, searchable maintenance records may prevent the Department from ensuring adequate maintenance is performed.

Providing a more complete record of apparatus maintenance will ensure operational capability and allow for better fleet management.

17 The Department have qualified members service the apparatus more frequently and include pressure washing/steam cleaning of the suspension and undercarriage of the apparatus.


The Department should provide Emergency Vehicle Technician training for the members doing the maintenance work.

Low 2014 to start, then ongoing for normal service

2015 budget for EVT training

Lack of complete maintenance may shorten the lifespan of apparatus or render it unusable at a critical time.

Ensuring complete maintenance and care of all apparatus and small equipment will ensure its full time availability and potentially extend its life cycle.



18 The Department not undertake offensive interior operations when dealing with fire involved structures until it has met the next two recommendations.

High 2014 to start

Offensive interior operations with fire involved structures presents a high risk to the Department and to its members; this risk requires specific training and operational policies to reduce somewhat the inherent risk.

Ensuring that firefighters committed to offensive interior attacks have the required training will reduce the risk of litigation for non-compliance. It will also reduce the risk of injury or fatalities for members of the Department.

19 The Department should develop written operational guidelines dealing with all principal fire ground operations, including offensive interior attacks. The written operational guidelines for interior operations, among other things, should specify the minimum levels of training and qualification for fire attack and primary search teams involved in such operations.

High 2014 to start

Emergency incidents (particularly fires) can pose very dynamic and high-risk situations, and therefore at times a high risk for firefighter death and injury.

To identity the proficiencies and competencies for each level of firefighter and officer, and the roles that they may engage in at a working fire situation, will help ensure the safety of all responding personnel.

20 The Department conduct a formal internal assessment of their training records to review the actual NFPA training levels achieved by each of their members, and to clearly identify each member who is qualified to undertake offensive interior operations (for which they have sufficient records to support this position) as noted in recommendation 19. The Department should develop a method of identifying these members such that they can readily be identified by the Fire Chief and an Incident Commander at a working incident. Where necessary, the Department and its officers should circumscribe their emergency incident operations to the training levels of the members present at an incident, given that firefighters and fire officers must adhere to the limits of their actual training.

High 2014 to start

Emergency incidents (particularly fires) can pose very dynamic and high-risk situations, and therefore at times a high-risk for firefighter death and injury.

To identity the gaps between a member’s current qualifications and those qualifications the department deems required for each level of the firefighter and fire officer roles, and to bridge these gaps as soon as possible, will help to ensure the safety of all personnel at an emergency incident. Risk mitigation and meeting OH&S responsibilities.



21 The Department should develop written training outlines indicating the training its members are expected to achieve for the various roles, tasks and tactics they may undertake on the fire ground, such as the different levels of firefighter – recruit, basic, and senior firefighter, firefighters capable of interior operations as a team member, as a team leader, fire officers (Lieutenants and Captains) and chief officers as team leaders, division and group supervisors, and incident commanders (this could be done in conjunction with the previous recommendations).

High 2014 to start


Improving operational performance and firefighter safety; risk mitigation and meeting OH&S requirements.

22 The Department should develop a written training outline indicating all courses available to its members; specifically those that are additional – over and above the NORD Basic Program.

High 2014 to start


Improving delivery of training to volunteers; enhancing training opportunities; improved fire ground operational capabilities through better training; and risk mitigation.

23 The Department should develop written performance evaluation processes (knowledge testing and skills checklists) for all programs that are additional to the NORD Basic Program as well as for LF-I and LF-II to enable the Department to assess and evaluate each member’s progress and determine when he or she has successfully achieved the required or expected standard of performance to ensure consistency in all firefighting skills.

High 2014 to start


Improving delivery of training to volunteers; enhancing training opportunities; improved fire ground operational capabilities through better training; and risk mitigation



24 The Department should conduct a formal internal assessment of their training records to clearly identify each member who is qualified to drive and or operate fire apparatus (for which they have sufficient records to support this position). From that review, the Department should develop a list of these members such that they can be readily identified, and the Department limit the emergency operation of the fire apparatus to those members with the appropriate levels of training.

High 2014 to start


Risk mitigation; development of a clear baseline for existing training of personnel. Once conducted, will enable the Department to conduct more focussed training to ensure any gaps are bridged.

25 The Department should develop specific pre-requisite criteria for members to attend LF-I, LF-II and LF-III, as well as rapid intervention team, training programs. These criteria should include that all participating members have met the requirements of the NORD Basic Program and confirm that, prior to members being allowed to conduct search and rescue operations under live fire conditions, they must have taken the training to do so in a non-live fire environment.

High 2014 to start


Improved clarity about who is qualified to conduct interior operations will reduce fire ground risk and improve overall operational effectiveness.

26 The Department should develop written operational guidelines that would identify the minimum qualifications and proficiency criteria for the role of live fire instructor at any live fire training event, including for live fire training in acquired structures. The Department should review the qualifications of all officers expected to instruct live fire training sessions to ensure that each meets these requirements and expectations.

High 2014 to start


Improved delivery of live fire training; risk mitigation.



27 The Department continue with the implementation of the FDM RMS in order to provide an effective RMS solution for training records. The Department should immediately begin utilizing the FDM RMS to enable them to maintain a comprehensive set of training records indicating all training that has already been delivered to each member in addition to all subsequent training provided. This approach will enable the Department readily to confirm the operational readiness of each of their firefighters. The implementation plan will need to take into account the training and administrative support that the Department will require to utilize the program and input their existing records and manage their records into the future.

High 2014 to start

Failure to provide adequate records of firefighter training, apparatus testing, etc., may place the District in breach of regulations.

Will better enable the Department to ensure its compliance with the requirement to maintain training and other records in defence of potential litigation.

28 The Department review and inventory all training related records to be maintained. Once the inventory has been completed, the Department should develop standard forms for each subject area to be used by all members. These forms should align with the computerized record keeping system to ensure consistency and ease of data input. The Department should also plan to maintain back-up copies of each record, once electronic versions are available.

High 2014 to start

Proper maintenance of training records is essential under the WCA and regulations.

Improved clarity about training levels of each member; risk mitigation; better management of overall training program.

29 The Township and City in consultation with the Department assess the need for the creation of the position of a Station or Administrative Officer, where the primary responsibility will be overseeing Department record keeping. It is suggested that this position be paid the hourly paid-on-call rate, based on the time required to update and then regularly input and maintain Department records.


Budget for 2015 or 2016

The ability to maintain records and various equipment is a requirement which is not currently being fully achieved. The need for this position should be re-assessed after the training officer in recommendation 3 is completed

Reduces the administrative burden on volunteers; improves records keeping; risk mitigation; enhances the Department’s ability to report on its operations and training.



30 That the City and Township in consultation with the Department undertake a firehall upgrade study including a review of future needs and spatial requirements.

High 2014 to confirm existing study

The existing firehall is not compliant with current and future needs and there is a recommendation with regard to an upgrade.

Upgrading the Armstrong fire hall will allow for the safe storage and maintenance of all apparatus as well as providing contemporary facilities for training and other activities.

31 Based on the outcomes of the above noted study, the City and Township should consider upgrading the current firehall.

High 2014 to confirm one option

The existing firehall is not compliant with current and future needs.

Upgrading the Armstrong fire hall will allow for the safe storage and maintenance of all apparatus as well as providing contemporary facilities for training and other activities.

32 That the Department commence planning in the near term for a second fire hall to provide coverage for the commercial/industrial properties as well as residential properties in the south part of the fire response area.


2020 goal to complete

Response times to the commercial and industrial properties as well as residences in the south portion of the response area are considerably outside of the Fire Underwriter’s requirements and may result in them being considered as unprotected.

Provision of a second fire hall in the south portion of the response area will provide acceptable coverage to commercial and residential properties within a distance acceptable to the Fire Underwriters.


Appendix 1: List of Acronyms and Referenced NFPA Standards Acronyms/Definitions

AHJ Authority Having Jurisdiction ASVFD Armstrong/Spallumcheen Volunteer Fire Department BCAS BC Ambulance Service BCERMS BC Emergency Resource Management System CAD Computer Aided Dispatch system DPG Dwelling Protection Grade—the rating type applied by the Fire

Underwriters to residential properties EVD Emergency Vehicle Driver EVO Emergency Vehicle Operator FF-I, II Firefighter I, Firefighter II FFEU Fire Fighter Equivalent Units FMR(S) First Medical Responder (Service) FSA Fire Services Act FSLG Fire Services Liaison Group FUS Fire Underwriters Survey ICS Incident Command System IFSTA International Fire Service Training Association JI Justice Institute of BC JPRs Job Performance Requirements IGPM International Gallons per Minute LAFC Local Assistant to the Fire Commissioner LF-I, II, III Live Fire I, Live Fire II, Live Fire III LGA Local Government Act NFPA National Fire Protection Association NORD North Okanagan Regional District OFC Officer of the Fire Commissioner OG Operational Guideline OH&S Occupational Health & Safety PASS Personal Alert Safety System PEP Provincial Emergency Program PFPC Public Fire Protection Classification—the rating type applied by the Fire

Underwriters to commercial and multi-family properties PPE Personal Protective Equipment RDNO Regional District of North Okanagan RMS Records Management System SAR Search and Rescue Team SCBA Self-Contained Breathing Apparatus


SPU Structure Protection Unit TO Training Officer WCA Workers Compensation Act WHMIS Workplace Hazardous Materials Information System WMB Wildfire Management Branch

Referenced NFPA Standards

NFPA 1001 - Standard for Fire Fighter Professional Qualifications (2013 Edition) NFPA 1021 - Standard for Fire Officer Professional Qualifications (2014 Edition) NFPA 1221 - Standard for the Installation, Maintenance, and Use of Emergency

Services Communications Systems (2013 Edition) NFPA 1403 – Standard on Live Fire Training Evolutions (2012 Edition) NFPA 1720 - Standard for the Organization and Deployment of Fire Suppression

Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments (2010 Edition)

NFPA 1620 - Standard for Pre-Incident Planning (2010 Edition) NFPA 1851 - Standard on the Selection, Care, and Maintenance of Protective

Ensembles for Structural Fire Fighting and Proximity Fire Fighting (2008 Edition) NFPA 1852 - Standard on Selection, Care and Maintenance of Open-Circuit Self-

Contained Breathing Apparatus (2008 Edition) NFPA 1901 - Standard for Automotive Fire Apparatus (2009 Edition) NFPA 1911 - Inspection, Maintenance, Testing and Retirement of In-Service Automotive

Fire Apparatus (2012 Edition) NFPA 1932 - Standard on the Use, Maintenance, and Service Testing of In-Service Fire

Department Ground Ladders (2010 Edition) NFPA 1962 - Standard for the Inspection, Care, And Use of Fire Hose, Couplings, and

Nozzles and the Service Testing of Fire Hose (2013 Edition) NFPA 1971 - Standard on Protective Ensembles for Structural Fire Fighting and

Proximity Fire Fighting (2013 Edition) NFPA 1982 - Standards on Personal Alert Safety Systems (2013 Edition) NFPA 1983 - Standard on Life Safety Rope and Equipment for Emergency Services

(2012 Edition)


Appendix 2: Firefighter Training The following section provides a general overview of the various firefighter training programs accepted in the fire service today. This overview is intended as a general guide and can be used by the Department to ensure its program meets its needs and statutory requirements. The description below should not be treated as exhaustive; there are many other areas of fire service training that may be needed to supplement these basic requirements.

The Consultants are not affiliated with any one specific training institution nor do we endorse one institution over another. We do recommend that any programs, developed in-house by the Department, or delivered by an outside training group, follow NFPA standards. As noted in the report, NFPA training standards are required to be met under the Minister’s Order on training made under the Fire Services Act (B.C.).

We also have included a detailed section on Live Fire Training Requirements which the Department may wish to consult when examining that aspect of its training program for its members and officers.

NFPA 1001 Standard for Firefighter Professional Qualifications – Chapter 5 Firefighter I (2013 edition)

(Note: these are not the complete requirements as laid out by the NFPA Standard, but those that the Consultant feels are pertinent to the role of a volunteer firefighter wishing to enhance the Basic Firefighter Level. Should a Department wish its members to achieve the full NFPA Standard for FF-I then of course all requirements would have to be met.)

The firefighter candidate shall meet the general knowledge requirements in 5.1.1, the general skill requirements in 5.1.2, and the job performance requirements (“JPRs”) defined in Sections 5.3 Fire ground Operations and 5.5 Prevention, Preparedness, and Maintenance of this standard.

5.1.1 General Knowledge Requirements

The organization of the fire department; the role of the Firefighter I in the organization; the mission of fire service; the fire department’s standard operating guidelines (SOGs) and rules and regulations as they apply to the Firefighter I; the role of other agencies as they relate to the fire department; aspects of the fire department’s member assistance program; the importance of physical fitness and a healthy lifestyle to the performance of the duties of a fire fighter; the critical aspects of NFPA 1500, Standard on Fire Department Occupational Safety and Health Program, as they apply to the Firefighter I; knot types and usage; the difference between life safety and utility rope; reasons for placing rope out of service; the types of knots to use for given tools, ropes, or situations; hoisting methods for tools and equipment; and using rope to support response activities.

5.1.2 General Skill Requirements


The ability to don personal protective clothing within one minute; doff personal protective clothing and prepare for reuse; hoist tools and equipment using ropes and the correct knot; and locate information in departmental documents and standard or code materials.

NFPA 1001 Standard for Firefighter Professional Qualifications – Chapter 6 Firefighter II (2013 edition)

(Note: these are not the complete requirements as laid out by the NFPA Standard, but those that the Consultant feels are pertinent to the role of a volunteer firefighter wishing to enhance the Basic Firefighter Level. Should the Department wish its members to achieve the full NFPA Standard then of course all requirements would have to be met.)

The Firefighter candidate shall meet the general knowledge requirements in 6.1.1, the general skill requirements in 6.1.2, the JPRs defined in Sections 6.2 Fire Department Communications, 6.3 Fire ground Operations, 6.4 Rescue Operations, 6.5 Prevention, Preparedness, and Maintenance of this standard, and the requirements defined above for Firefighter I.

6.1.1 General Knowledge Requirements Responsibilities of the Firefighter II in assuming and transferring command within an incident management system, performing assigned duties in conformance with applicable NFPA and other safety regulations and AHJ111 procedures, and the role of a Firefighter II within the organization.

6.1.2 General Skill Requirements The ability to determine the need for command, organize and coordinate an incident management system until command is transferred, and function within an assigned role in an incident management system.

The fire ground operational requirements of the NFPA 1001 Standard, Sections 5.3 (FF-I) and 6.3 (FF-II), require that candidates are capable of a number of operational skills; of those the following are related to live fire operations:

1) attack a passenger vehicle fire operating as a member of a team; 2) extinguish fires in exterior Class A materials; 3) attack an interior structure fire operating as a member of a team; 4) extinguish incipient Class A, Class B, and Class C fires, given a selection of portable fire

extinguishers; 5) turn off building utilities; 6) combat a ground cover fire operating as a member of a team; 7) extinguish an ignitable liquid fire operating as a member of a team; 8) coordinate an interior attack for the given level of the fire (e.g., attic, grade level, upper

levels, or basement); 9) control a flammable gas cylinder fire operating as a member of a team; and 10) protect evidence of fire cause and origin.

111 Authority Having Jurisdiction


BC Basic Fire Fighting Program The BC Basic Fire Fighting Program allows departments to demonstrate that their firefighters possess the minimum firefighter skills within the requirements of the NFPA 1001 Standard to enable them to function at the basic level as team members under direct supervision of a qualified officer while engaged in exterior operations.

The topics included are: (referenced to the IFSTA Essentials of Firefighting Manual, 5th edition)

Fire Fighter Safety (IFSTA chapter 2)

Personal Protection Equipment & Self Contained Breathing Apparatus (IFSTA chapter 5)

Rope and Knots (IFSTA chapter 7)

Ladders (IFSTA chapter 10)

Ventilation (IFSTA chapter 11)

Fire Hose, Fire Streams and Appliances (IFSTA chapter 13 and 14)

Water Supplies (IFSTA chapter 12)

Fire Behaviour (IFSTA chapter 3) (optional)

The BC Basic Fire Fighting Program was intended to provide a consistent standard for British Columbia Volunteer Fire Department members with the basic training required to serve their communities and provide credit toward NFPA 1001 FF-I and FF-II when done as part of an accredited NFPA 1001 Firefighter program.

Live Fire Training The principal mandate of the ASVFD is to provide fire protection and conduct fire suppression operations. Aggressive interior operations, such as fire attacks and primary searches may, at times, be necessary and appropriate. According to the Fire Chief, the Department will conduct offensive interior operations depending on the nature of the incident and the number and skill level of the members in attendance. As noted earlier the general criteria used by the Department to determine which members are qualified for interior operations are that they must have completed the NORD Basic Program which includes a LF-I training component.

The Department’s focus on live fire training is commendable and should be continued. Their approach to this issue compares well to that of most of the volunteer and composite departments that we have worked with in the province. Given the relatively small number of working fires attended by the Department, the need for proper training and skills maintenance is essential to ensure that firefighters are able to respond safely and effectively. Live fire training is essential to ensuring safe and effective responses in these situations. To ensure that the


issue is properly understood by all of the stakeholders, we have therefore considered it appropriate to discuss this training issue in some detail.

Live fire training is an essential component in the development of the firefighter candidate not only to meet the requirements of the NFPA 1001 Standard for FF-I and FF-II, but also to prepare the firefighter candidate at the basic level to conduct interior offensive operations safely. All firefighters confronted with incidents involving live fire (vehicle, exterior class A combustibles, interior contents and/or structure, flammable liquid, flammable gas cylinder, or ground cover) should have completed some form of live fire training that dealt with these various types of fire situations such that the member is capable of safely conducting those fire ground operations at an emergency incident.

There is no specific standard in the fire service for Live Fire qualifications; accordingly, there are no “accredited” live fire training programs. As a result, many live fire training courses have been developed and delivered throughout the province with the criteria for most based on the fire ground operational requirements of the NFPA 1001 Standard. Because there is no “live fire standard”, these live fire training courses tend to vary from agency to agency, area to area, and instructor to instructor. Not only is it important for firefighter safety that the department’s firefighters receive live fire training before being confronted with real live fire situations, it is equally important that the Departments ensure that this training is designed to familiarize the member with the specific type of fire situations likely to be encountered, and that the instructors are capable and well experienced in managing live fire situations and delivering this type of training.

Live fire training activities of entry level and experienced fire suppression personnel are high-risk activities. Those risks need to be understood by all participants.112 The risks can be effectively managed by compliance with the NFPA 1403: Standard on Live Fire Training Evolutions (2012 edition). Section 4.6 of the Standard requires that all instructors shall be qualified by the AHJ to deliver live fire training and that the instructor-in-charge shall have received training to meet the minimum job performance requirements for Fire Instructor I in NFPA 1041, Standard for Fire Service Instructor Professional Qualifications. The instructor-in-charge shall be responsible for full compliance with this standard and it shall be the responsibility of the instructor-in-charge to coordinate overall fire ground activities to ensure correct levels of safety.

The Department is very proactive with its live fire training as it conducts three four-hour LF-I sessions per year along with several additional two hour sessions conducted on the weekly practice nights. The four hour sessions are instructed by the Deputy Chief/Training Officer, while the Captains assist with or manage the instruction of the two hour practice night sessions. The Deputy Chief/Training Officer confirmed that he is qualified as a Justice Institute instructor and 112 See: Brian P. Kazmierzak, “Live-Fire Training LODDs: We Must Heed the Lessons Learned,” Fire Engineering (1 April 2007), at: http://www.fireengineering.com/articles/2007/04/live-fire-training-lodds-we-must-heed-the-lessons-learned.html.


evaluator, as well as having many years of experience with live fire training and instruction. The Department utilizes the Justice Institute course outlines for its LF-I and LF-II courses as a guide, though it has no formal written training plans/procedures for these programs. Given the proactive approach the Department has to live fire training, and in consideration of the NFPA 1403 Standard, we would recommend that the Department review all officers expected to instruct live fire training sessions to ensure that each meets the qualifications and expectations required by the Department.

A critical component to live fire training is the proper use of SCBA and PPE. Training conducted to familiarize firefighters in the proper use of SCBA and other PPE in a smoke-filled environment should not be conducted during live fire training exercises. Rather, to ensure the safety of members engaged in live fire training exercises, it is recommended that all fire suppression personnel have met the requirements of the RD Basic Program as described above and that, prior to members conducting search and rescue operations under live fire conditions, they have previously been trained to do so in a non-live fire environment.

Before conducting attack or search and rescue operations in a live-fire structure, members’ training and experience should include:

familiarity with operating as a member of a team; familiarity with being given an assignment as a team member; training to operate in obscured vision conditions; familiarity with use of all PPE and SCBA; training in the use of all requisite tools and equipment, including forcible entry tools,

flashlights, hose lines, and ladders when necessary (so that ladders are correctly placed when used); and

training in procedures to ensure that all assigned areas are searched and all victims are located and removed, while maintaining the integrity and safety of the team.

The following are outlines of what a suitable live fire training program should entail to align with the fire ground operational requirements for FF-I (live fire I) and FF-II (live fire II) of the NFPA 1001 standard and of Fire Officer-I and Fire Officer-II (live fire III) of the NFPA 1021 Standard. All or some of these requirements may be included in the exercises based on the desired outcome of the training program as determined by the Fire Chief.

Live Fire Level I A firefighter completing live fire level I training will have developed the knowledge and practical skills/techniques to function safely and effectively as a member of a firefighter team and be able to demonstrate the following:

1) Attack a passenger vehicle fire operating as a member of a team, given personal protective equipment, an attack line, and hand tools, so that hazards are avoided,


leaking flammable liquids are identified and controlled, protection from flash fires is maintained, all vehicle compartments are overhauled, and the fire is extinguished.

2) Extinguish fires in exterior Class A materials, given fires in stacked or piled and small unattached structures or storage containers that can be fought from the exterior, attack lines, hand tools and master stream devices, and an assignment, so that exposures are protected, the spread of fire is stopped, collapse hazards are avoided, water application is effective, the fire is extinguished, and signs of the origin area(s) and arson are preserved.

3) Attack an interior structure fire operating as a member of a team given an attack line, ladders when needed, personal protective equipment, tools, and an assignment, so that team integrity is maintained, the attack line is deployed for advancement, ladders are correctly placed when used, access is gained into the fire area, effective water application practices are used, the fire is approached correctly, attack techniques facilitate suppression given the level of the fire, hidden fire are located and controlled, the correct body posture is maintained, hazards are recognized and managed, and the fire is brought under control.

4) Extinguish incipient Class A, Class B, and Class C fires, given a selection of portable fire extinguishers, so that the correct extinguisher is chosen, the fire is completely extinguished, and correct extinguisher-handling techniques are followed.

5) Turn off building utilities, given tools and an assignment, so that the assignment is safely completed.

6) Combat a ground cover fire operating as a member of a team, given protective clothing, SCBA if needed, hose lines, extinguishers or hand tools, and an assignment, so that threats to property are reported, threats to personal safety are recognized, retreat is quickly accomplished when warranted, and the assignment is completed.

Recommended prerequisite knowledge and skills for Live Fire I training are:

Fire Fighter Orientation and Incident Organization (IFSTA chapter 2) Firefighter Safety and Incident Communications (IFSTA chapter 2) Fire Behaviour (IFSTA chapter 3) Personal Protection Equipment and Self Contained Breathing Apparatus (IFSTA chapter

5) Portable Fire Extinguishers (IFSTA chapter 6) Basic Rope and Knots (IFSTA chapter 7) Basic Search and Rescue (IFSTA chapter 8) Basic Forcible Entry (IFSTA chapter 9) Ladders (IFSTA chapter 10) Ventilation (IFSTA chapter 11) Water Supplies (IFSTA chapter 12)


Fire Hose, Fire Streams and Appliances (IFSTA chapter 13 and 14)

Live Fire Level II The firefighter completing live fire level II training will have developed the knowledge and practical skills/techniques to function safely and effectively as a member of a fire fighter team, as a tactical team leader at common residential fires and small business fires (with sufficient fire ground experience and/or the determination of the fire chief) and be able to demonstrate the following:

1) Extinguish an ignitable liquid fire, operating as a member of a team, given an assignment, an attack line, personal protective equipment, a foam proportioning device, a nozzle, foam concentrates, and a water supply, so that the correct type of foam concentrate is selected for the given fuel and conditions, a properly proportioned foam stream is applied to the surface of the fuel to create and maintain a foam blanket, fire is extinguished, re-ignition is prevented, team protection is maintained with a foam stream, and the hazard is faced until retreat to safe haven is reached.

2) Coordinate an interior attack line team for accomplishment of an assignment in a structure fire, given attack lines, personnel, personal protective equipment, and tools, so that crew integrity is established; attack techniques are selected for the given level of the fire (e.g. attic, grade level, upper levels or basement); constant team coordination is maintained; fire growth and development is continuously evaluated; search, rescue, and ventilation requirements are communicated or managed; hazards are reported to the attack teams; and incident command is apprised of changing conditions. (At common residential fires and small business fires in the fire department’s district. Complex or large interior fire management should be left to the fire officers)

3) Control a flammable gas cylinder fire, operating as a member of a team, given an assignment, a cylinder outside of a structure, an attack line, personal protective equipment, and tools, so that crew integrity is maintained, contents are identified, safe havens are identified prior to advancing, open valves are closed, flames are not extinguished unless the leaking gas is eliminated, the cylinder is cooled, cylinder integrity is evaluated, hazardous conditions are recognized and acted upon, and the cylinder is faced during approach and retreat.

Recommended prerequisite knowledge and skills for Live Fire II training are:

Live Fire I Fire Control (IFSTA chapter 15) Fire Ground Radio Communication (IFSTA chapter 19) Sufficient fire ground experience and/or the determination of the fire chief

Live Fire Level III


The firefighter completing live fire level III training will have developed the knowledge and practical skills/techniques to function safely and effectively as a tactical team leader and as an incident commander involved in managing, planning, and deployment at multi-unit common residential fires and small business fires (with sufficient fire ground experience and/or the determination of the fire chief) and be able to demonstrate the following:

Given an emergency incident requiring multiple-unit operations, prepare an incident action plan by determining the appropriate strategic goals and tactical objectives, so that the required resources are determined and the resources are assigned and placed to mitigate the incident by applying the Incident Command System and utilizing an accountability system to ensure the whereabouts of all personnel assigned to the incident.


Appendix 3: Fire Department Health and Safety Program The following are comments on minor issues in the Department’s OH&S Program. Some language covering a WHIMIS program is included at the end for consideration. Section Comment 1. Policy Statement

Note: in general, throughout the document there should be express cross references to both the appropriate sections of the WCA and Regulations, and to relevant operational guidelines. This cross-referencing will make subsequent reviews and updates much easier. Some examples are given below.

1.01 The phrase “foster a health and safe attitude” is awkward – consider revising to read: “foster a healthy and safe workplace”.

1.04 Add that officers are responsible for supervising the activities of the fire department members

2. Safe Work Procedures

PPE Looks fine. Might consider cross-referencing to appropriate OGs and WCA/OSH Regulations

SCBA Section 2.05 should expressly refer to the Department’s Respiratory Program, rather than just to the Operational Guidelines.

Consider cross-referencing to the appropriate WCA/OSH Regulations (e.g., Part 31, ss. 31.19 – 31.26 on SCBA; and Section 8.32-8.45).

Equipment Add to the list, in compliance with “WorkSafe BC requirements” 3. Training 3.01 In the “standards” section, cross refer to the minister’s order on training under s.

3(3)(b) of the FSA. Ensure that reference to RDNO “Fire Fighter Standards” is actually current (i.e., that such a standard actually exists, in writing).

3.02 Stipulate that the training must cover all of the operational responsibilities of the Department members, as well as …[the existing items noted].

3.04 Cross refer to the relevant OG to make review easier. 3.05 Cross-refer to NFPA requirements here (to meet the obligation under the Minister’s

order on training). 5. Inspections & Monitoring

General Where referencing OGs, identify the relevant OG where possible. 5.08 With respect to testing of elevating devices, cross refer to OSH Reg. 31.33-36 and

to NFPA 1914 Testing Fire Department Aerial Devices. 5.09 Add a reference to the Department’s Respiratory Program. New section Add a section on the testing of the Department’s ground ladders in accordance with

s. 31.37 of the Part 31 of the Regulations under the WCA. 6. Monitoring Exposures

General This section addresses both fire scene and regular (i.e., fire hall) exposures. The


title should be changed accordingly. The three sections dealing with fire scene/emergency incident exposures (6.01, 6.03 and 6.05) should be grouped under a sub-heading. They should not be limited to a “fire scene” – rather, they should include any response which potentially poses a threat to Department members (e.g., could include hazmat response).

7. Medical Exams Confirm this is done and that hearing tests are actually maintained. 8. First Aid It would be useful to cross-reference the applicable Regulations under the WCA so

that it is easier to check that the obligations under this section are being met: in particular, this should be reviewed against Part 3, sections 3.14 – 3.21 and Schedule 3-A, of the WCA Regulations.

8.01 Include an annual review by the OSH Committee of the first aid equipment that is maintained both in the fire hall and on the trucks.

9. Accident Investigation

9.02 Note that the members of the Joint Committee are entitled to participate in accident investigations. This should be expressly stated.

10. OH&S Committee

On the establishment and operation of a Joint Committee, see the discussion in the main report.

11. Statistics This section also should include provisions dealing with the maintenance of training records of each fire department member

12. Reviews Note that the review must be conducted annually – even if no changes are made, the fact that the review was undertaken should be recorded.

With respect to a WHIMIS section, consider the following language: Sample language

The Department will establish a Workplace Hazardous Materials Information System (WHMIS) to identify and maintain an inventory of hazardous materials and substances, including measures required to eliminate or effectively control dangers related to their transportation, storage, handling, use and disposal.

The Department Safety Officer will:

be responsible for the implementation and maintenance of the WHMIS program and

ensuring it conforms to all applicable Workers Compensation Regulations, establish an inventory of controlled products, ensure WHMIS labeling and Safety Data Sheets are in place, determine hazards of controlled products in his or her respective Fire Hall(s), establish Fire Hall controls, provide WHMIS training to Fire Department members, and in consultation with the OH&S Committee, review and upgrade the WHMIS program.


Fire department members are to report any exposure to suspected toxic products or contagious diseases to the Officer-in-Charge or the Department Safety Officer.


Appendix 4: Consultants’ Resumes Dave Mitchell

Dave Mitchell retired as Division Chief, Communications in 1998 from Vancouver Fire & Rescue Services following a career spanning 32 years. During this time he was responsible for managing the emergency call taking and dispatch for the Vancouver and Whistler Fire Departments. In 1997 he managed the transition of dispatch service for the five Fire Departments on the Sunshine Coast from an independent contractor, to Vancouver Fire/Rescue. In 1998, Dave was hired by E-Comm, Emergency Communications for Southwest BC as its first Director of Operations. In this role he was a member of the founding senior management team, and was responsible for the transition of the Regional 9-1-1 Control Centre staff from the Vancouver Police Department to its current location at 3301 East Pender in June 1999. By June 2000 this included the management of approximately 200 call takers, dispatchers and team managers in addition to a ULC listed alarm monitoring service. He left E-Comm in June 2000 to work as a consultant, and since that time has managed the development of corporate, strategic and operational plans for a number of clients. In addition he has completed a number of fire hall location studies for clients throughout the Province, provided transition management services to Vancouver Fire/Rescue as it implemented a new Computer Aided Dispatch system. In 2004, Dave provided technical advice to the Hon. Gary Filmon as part of the Firestorm 2003 Review. In 2005, along with ICTconsult Inc. he conducted a full review of the radio system for the fire departments on the Sunshine Coast Regional District and in 2006 he conducted a similar review for the Central Okanagan Regional District.

More recently, along with a number of associates he has conducted master fire plans for West Vancouver, Saanich, North Vancouver District, Sidney, Port Moody, North Vancouver City and Pitt Meadows in addition to managing major communications upgrades for E-Comm and the Regional District of Fraser-Fort George along with fire hall location studies for the Fort St. John, Central Saanich and Pitt Meadows Fire Departments. He has also led a number of communication centre reviews for clients such as the Prince George Fire Department, the City of Lethbridge Public Safety Communications Centre and the Toronto Fire Service. He has recently conducted fire services reviews for the Comox Strathcona, Columbia Shuswap Squamish Lillooet and Alberni-Clayoquot Regional Districts. He also was retained by the Fire Commissioner to advise her office in connection with the project in 2009 to develop a region-wide mutual aid agreement that encompassed the Olympic corridor up to Whistler and more recently developed a fire services resource allocation strategy in 2011.

Dave holds a Bachelor of Arts Degree (Geography) from Simon Fraser University in addition to a diploma from their Executive Management Development Program. He is past Chair of the Board of Directors of the Vancouver General Hospital and University of British Columbia


Hospital Foundation, a Director of the Justice Institute of British Columbia Foundation, a member of the National Fire Protection Association (NFPA), the National Emergency Number Association (NENA), the Association of Public-Safety Communications Officials (APCO), the Fire Chiefs’ Association of British Columbia (FCABC), the Canadian Association of Management Consultants (CAMC) and is a member of the Public Safety Communications Advisory Committee of Kwantlen Polytechnic University. Wayne Humphry

Wayne is recently retired from Vancouver Fire/Rescue after a career spanning 31 years. During this time, Wayne served in fire suppression, rising to the rank of Battalion Chief. He also worked extensively with Vancouver Fire’s training division where he was seconded as an instructor and Division Chief between 1996 and 2009. Based on his work in both roles he has extensive experience in fire rescue emergency operations, specialty teams, logistical planning and budgeting, training and development, facilitation, and project creation and management. In addition to his work with Vancouver Fire he has been an instructor at the Justice Institute of BC, at UBC’s Sauder School of Business as well as for Capilano University113. Wayne has developed in-house Officer Development seminars including ProBoard certified programs for various career fire departments throughout the province, for Capilano University and the Justice Institute of BC as well as a High-Rise Firefighting Manual and Operational Guidelines. He is an accredited instructor with the Fire Academy and his subject expertise includes Fire Officer Level 1, 2 and 3 programs – Emergency Incident Management (BCERMS/ICS, Command Post and EOC operations, fire behaviour, strategies and tactics); Incident Safety Officer; and Live Fire Exercises Levels 1, 2 & 3. Wayne was also a Fire and Rescue Services Subject Matter Expert for the JI’s Critical Incident Simulation Centre’s program development for multi-agency, multi-jurisdictional incident management training. Wayne has worked with DMA on the study examining the issues related to the establishment of a fire department by the Columbia Shuswap Regional District in the Kicking Horse Mountain

113 Mr. Humphry has trained fire fighters and officers from a large number of fire departments in BC including: Adams Lake, Armstrong-Spallumcheen, Ashcroft, Barriere, Beaver Creek, Burns Lake, Celista, Chase, Comox, Cowichan Bay, Cranbrook, Cumberland, Dawson Creek, Deep Bay, Enderby, Esquimalt, Fernie, Fort St James, Fort St John, Golden, Kamloops, Kelowna, Langford, Langley City and Township, Logan Lake, Loon Lake, Lumby, Malakwa, Mission, Nanaimo, North Saanich, Oak Bay, Peachland, Pemberton, Port Alberni, Port Alice, Prince George, Princeton, Quesnel, Salmo, Sayward, Smithers, Sooke, Squamish, Summerland, Terrace, Vernon, View Royal, West Vancouver, Whistler, Williams Lake, Windermere and Yale.


region. In addition Wayne teaches emergency incident management to a range of clients in BC and Alberta including Calgary, North Vancouver District, Burnaby and other fire departments. Ian MacDonald

Ian MacDonald is a former lawyer who practiced international corporate law in Canada and the United Kingdom. Ian started as a lawyer with Davies Ward & Beck in Toronto in 1990 and worked on large corporate transactions in Canada, including corporate financings, shareholder agreements and corporate restructurings and corporate acquisitions. Ian became a partner in Davies Ward & Beck in 1994 and an equity partner in 1996. After moving to England in 1998, Ian became managing partner of Arnander, Irvine & Zietman, an intellectual property/litigation firm, and had a varied practice advising clients in respect of company formation, shareholder and members’ agreements, corporate financing, governance issues, and privacy matters. He also did extensive work on litigation files related to corporate fraud.

Ian retired as a lawyer in January 2004 and returned to Canada, since which time he has acted as a volunteer director on two boards, acting as the chair of the governance committee for both, and assisted various community groups in developing long term strategic and business plans.

Ian has previously worked with Planetworks Consulting Corporation on the Capital Region Emergency Service Telecommunications project, conducting a full governance review of that organization. With DMA, Ian has worked on the Comox Strathcona Regional District Fire Innovations project, the fire service reviews for the Columbia Shuswap Regional District (“CSRD”), Squamish-Lillooet Regional District, Pitt Meadows and the Alberni-Clayoquot Regional District, and the quality assurance and operations review for the City of Toronto’s fire dispatch operations. The work for the CSRD included assisting with the development of bylaws to implement the recommended reorganization. He also has advised the CSRD regarding the development of a new fire department for the Kicking Horse Mountain area, worked with the Alberni-Clayoquot Regional District and City of Port Alberni to develop and implement an automatic aid arrangement between their respective fire departments, and is currently working on projects for the Office of the Fire Commissioner and a fire department audit for the Regional District of Fraser-Fort George.

Geoff Lake

Geoff Lake is a talented professional with over 33 years’ experience in the fire service. He has extensive experience in budget analysis, strategic planning/analysis, project management, executive leadership, contract negotiations and organizational change. Applying this experience successfully, results in effective and practical business solutions for organizations.


During his long and successful career in the City of Richmond’s Fire-Rescue Department, Geoff rose to the position of Deputy Fire Chief - Administration responsible for the Fire Prevention Division, the Mechanical Division, the Public Education Division, and Communication/ Technology. He managed a $22 million annual budget and was responsible for the procurement of capital equipment including fire apparatus and other fire services equipment. From 2004 to 2007, Geoff oversaw the completion of two new fire halls, from the initial planning and budgeting stage through design and final construction. These complex projects included conducting fire hall location studies, liaising with the city real estate agent to procure the property, and working with architects, planning and the city project manager to design and oversee construction of the facilities.

With responsibility for the communications and technology requirements of the Department, Geoff oversaw the selection and implementation of the new Records Management System (RMS) and a new Computer Aided Dispatch (CAD) System. He took an active role in setting up Project Fires, a jointly owned/operated fire services RMS currently hosted by E-Comm. In 2003, under Geoff’s leadership, Richmond Fire Rescue took a lead role in the emergency services Combined Events Radio Project (CERP). The project provided emergency personnel from all services with the ability to communicate directly with each other prior to arriving on scene.

During his career Geoff had the opportunity to practice labour relations from the perspectives of both a union representative and a senior manager. These experiences have left him with a clear understanding of just what it takes to build and maintain healthy, respectful and beneficial workplace relationships. As Deputy Chief he was responsible for overseeing and implementing interpretation of the collective agreement.

Since retiring from the fire service in 2008, Geoff has been working as a consultant within the public safety industry, most recently spending 13 months as Olympic Coordinator for Safety & Security for the City of Richmond 2010 Olympic Festival Site. He is currently working with Dave Mitchell and Associates on a project involving the inspections and audits of the Regional District of Fraser Fort George volunteer fire departments and on the development of a Fire Services Emergency Resource Mobilization Program for the Office of the Fire Commissioner. Lorne Mutter

Lorne Mutter served over 30 years with Vancouver Fire and Rescue Services (VF&RS), retiring in late 2003 as the Division Chief, Mechanics. He served in Fire Suppression, Fleet Maintenance and the Training Division where he was a Training Officer, an instructor for VF&RS at the Justice Institute of BC and the Acting Division Chief, Training.

Lorne has Trades Qualifications in Commercial Transport Mechanics, Heavy Duty Mechanics, Automotive Mechanics, and Motor Vehicle Inspection; until recently he was qualified as a Master Emergency Vehicle Mechanic. During his tenure with Vancouver Fire he worked with the Justice Institute of BC and Surrey Fire developing the Emergency Vehicle Operations Program for BC and developed the specifications used by VF&RS for the 18 pieces of heavy fire


apparatus purchased between 2006 and 2009. He has vast experience with the development of recommendations and specifications for fire apparatus and equipment, as well as the development of programs for their maintenance and upkeep.

Armstrong – Spallumcheen Fire Services Review

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