Township of Wilmot Fire Master Plan

Submi ed by:

Township of Wilmot

Fire Master PlanFinal Report

December 2012

Township of WilmotFire Master PlanFinal ReportDecember 2012

Our Project: 12-6148

Prepared By:

Dillon ConsultingLimited

Fire Master PlanTownship of WilmotDecember 2012

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TABLE OF CONTENTS

TABLE OF CONTENTS ...................................................................................................................... I

LIST OF TABLES.............................................................................................................................. III

LIST OF FIGURES ............................................................................................................................ III

1.0 INTRODUCTION ..................................................................................................................... 11.1 Community Background ................................................................................................. 11.2 Department Background ................................................................................................. 2

2.0 LEGISLATION ......................................................................................................................... 32.1 Legislation Fire Prevention and Protection Act, 1997 ...................................................... 32.2 Office of the Fire Marshal, Ontario ................................................................................. 42.3 Occupational Health and Safety Act ............................................................................... 5

3.0 COMMUNITY RISK PROFILE............................................................................................... 63.1 Summary of Community Risk Profile ............................................................................. 7

4.0 ADMINISTRATION DIVISION .............................................................................................. 94.1 Department Services ....................................................................................................... 94.2 Department Organization .............................................................................................. 104.3 Department Management Team .................................................................................... 11

4.3.1 Fire Chief ........................................................................................................ 114.3.2 District Chiefs .................................................................................................. 114.3.3 Deputy Fire Chief ............................................................................................ 124.3.4 Administrative Support .................................................................................... 13

4.4 Administrative Workspace............................................................................................ 134.5 Annual Report .............................................................................................................. 134.6 By-laws & Agreements ................................................................................................ 14

4.6.1 By-laws ........................................................................................................... 144.6.2 Mutual Aid Agreements ................................................................................... 144.6.3 Automatic Aid Agreements (Fire Protection Agreements) ................................ 144.6.4 Tiered Response Agreement............................................................................. 174.6.5 Dispatch Services Agreement ........................................................................... 17

4.7 Mission Statement ........................................................................................................ 184.8 Departmental Policies and Standard Operating Guidelines ............................................ 184.9 Departmental Records Management ............................................................................. 194.10 Community Emergency Management (CEM) ............................................................... 204.11 Administration Division Summary and Recommendations ............................................ 21

5.0 FIRE PREVENTION & PUBLIC EDUCATION ................................................................... 235.1 Comprehensive Fire Safety Effectiveness Model .......................................................... 235.2 Staffing ........................................................................................................................ 23

5.2.1 Fire Prevention Inspections .............................................................................. 245.2.2 Fire Investigations............................................................................................ 265.2.3 Fire Safety Plans .............................................................................................. 265.2.4 Public Education Programs .............................................................................. 285.2.5 Smoke Alarm Program ..................................................................................... 29

5.3 Fees for Service ............................................................................................................ 305.4 Workspace ................................................................................................................... 305.5 Fire Prevention/Public Education Division Summary and Recommendations ................ 30


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6.0 FIRE SUPPRESSION .............................................................................................................. 326.1 Emergency Response.................................................................................................... 326.2 Fire Suppression Performance Targets .......................................................................... 326.3 Fire Suppression Operations ......................................................................................... 34

6.3.1 Initial Response Areas ..................................................................................... 356.3.2 Depth of Response Areas ................................................................................. 366.3.3 Automatic Aid Agreements (Fire Protection Agreements) ................................ 376.3.4 Call Volume .................................................................................................... 386.3.5 Incident Types ................................................................................................. 396.3.6 Incident Types by Station ................................................................................. 416.3.7 Total Response Times ...................................................................................... 436.3.8 Response Times by Station .............................................................................. 456.3.9 Dispatch Times ................................................................................................ 456.3.10 Turnout Times ................................................................................................. 476.3.11 Turnout Times by Station ................................................................................. 486.3.12 Travel Times.................................................................................................... 49

6.4 Existing Fire Suppression Services ............................................................................... 496.4.1 Current Staffing ............................................................................................... 49

6.5 Medical Calls ............................................................................................................... 516.6 Municipal Water System .............................................................................................. 52

6.6.1 Municipal Water System .................................................................................. 526.6.2 Tanker Shuttle Accreditation ............................................................................ 536.6.3 Emergency Response –Volunteer Firefighters .................................................. 53

6.7 Fire Suppression Division Summary and Recommendations ......................................... 53

7.0 TRAINING DIVISION ............................................................................................................ 557.1 Staffing and Training Sessions...................................................................................... 557.2 Training Programs ........................................................................................................ 567.3 Specialty Training Programs ......................................................................................... 56

7.3.1 Live Fire Training ............................................................................................ 577.4 Succession Planning ..................................................................................................... 57

7.4.1 Promotional/Recruitment Process ..................................................................... 577.4.2 Company Officer Training ............................................................................... 587.4.3 Training Remuneration .................................................................................... 58

7.5 Facilities & Workspace ................................................................................................ 587.6 Training Division Summary and Recommendations ...................................................... 59

8.0 FIRE STATIONS, APPARATUS & EQUIPMENT ............................................................... 608.1 Fire Stations ................................................................................................................. 608.2 Diesel Emissions .......................................................................................................... 618.3 Apparatus and Equipment ............................................................................................. 62

8.3.1 Staffing and Responsibilities ............................................................................ 628.3.2 Apparatus & Fleet ............................................................................................ 62

8.4 Maintenance ................................................................................................................. 638.4.1 Apparatus Maintenance .................................................................................... 63

8.5 Equipment .................................................................................................................... 648.6 Fleet Replacement Plan ................................................................................................ 658.7 Fire Station, Apparatus, & Equipment Summary and Recommendations ....................... 66


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9.0 COMMUNICATIONS & TECHNOLOGY ............................................................................ 679.1 Fire Dispatch ................................................................................................................ 679.2 Internal Department Communications ........................................................................... 679.3 Communications and Technology Summary and Recommendations ............................. 68

10.0 STUDY CONSULTATION ..................................................................................................... 6910.1 Steering Committee ...................................................................................................... 6910.2 Project Meetings........................................................................................................... 6910.3 Stakeholder Consultation .............................................................................................. 69

10.3.1 Interviews with Steering Committee Members ................................................. 6910.3.2 Interview with District Chiefs .......................................................................... 7010.3.3 Volunteer Firefighter Roundtable Sessions ....................................................... 7010.3.4 Project Update for Volunteer Firefighters ......................................................... 70

11.0 IMPLEMENTATION PLAN .................................................................................................. 71

LIST OF TABLES

Table 1: Fire Prevention and Public Education Activities ....................................................................... 24

Table 2: Township of Wilmot Fire Inspection Performance Measures ................................................... 25

Table 3: Fire Prevention and Public Education Priority Setting Worksheet ............................................ 27

Table 4: Children Safety Village Attendance (2009-2012) .................................................................... 28

Table 5: Summary of Incident Types .................................................................................................... 39

Table 6: NFPA 1720 Table 4.3.2 Staffing and Response Time ............................................................... 43

Table 7: Historic 90th Percentile Response Times by Station (2007-2011) ............................................. 45

Table 8: Historic 90th Percentile Turnout Times by Station (2007-2011) ............................................... 48

Table 9: Current Stations, Apparatus & Minimum Staffing ................................................................... 61

Table 10: Apparatus and Model Year .................................................................................................... 62

Table 11: Fleet Replacement Plan ......................................................................................................... 65

Table 12: Implementation Plan .............................................................................................................. 71

LIST OF FIGURES

Figure 1: Department Organizational Chart............................................................................................ 10

Figure 2: Automatic Aid Coverage Areas .............................................................................................. 16

Figure 3: Current Initial Response Coverage Areas ............................................................................... 35

Figure 4: Current Depth of Response Coverage Areas ........................................................................... 36

Figure 5: Historical Annual Call Volume (2007 - 2011) ........................................................................ 38

Figure 6: Historic Annual Call Volume by Station (2007-2011) ............................................................. 38

Figure 7: Historical Call Volume by Type (2007-2011) ........................................................................ 39

Figure 8: Percentage of Calls by Type ................................................................................................... 40


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Figure 9: Calls by Type - Baden Station................................................................................................. 41

Figure 10: Calls by Type, New Dundee Station ...................................................................................... 41

Figure 11: Calls by Type, New Hamburg Station ................................................................................... 42

Figure 12: Historical Total Response Times by Type (2007-2011) ........................................................ 44

Figure 13: 90th Percentile Dispatch Times (2007-2011) ........................................................................ 46

Figure 14: 90th Percentile Turnout Times (2007-2011) .......................................................................... 47

Figure 15: 90th Percentile Travel Times (2007-2011) ........................................................................... 49

Figure 16: Average Depth of Response Staffing .................................................................................... 51

APPENDICES

Appendix A: Detailed Community Risk Assessment

Appendix B: Fire Suppression Performance Targets


1.0 IntroductionPage - 1

1.0 INTRODUCTIONThe Township of Wilmot initiated this Fire Master Plan (FMP) study to assess current and future levels ofservice and programs provided by the fire department. The Fire Master Plan is a strategic document thatwill assist the Township and Wilmot Fire Department with planning the delivery of fire protectionservices over the next ten year period with consideration for the 20 year planning horizon. Fire MasterPlans are typically ten year plans, with a review of the plan conducted at the five year horizon.Completion of the FMP recognizes the continued commitment of the Township’s Council and senior staffto providing the highest level of services and programs to the community in the most fiscally responsibleand efficient manner.

This FMP provides a complete review of the current operations of the Wilmot Fire Department to assistCouncil in establishing key objectives for the department. The plan includes recommendations to addressboth short-term and long-term strategies for the Township, consistent with the fire master planningprocess outlined within the Office of the Fire Marshal, Ontario, Shaping Fire-Safe CommunitiesInitiative.

The overarching goal of this report is to present a clear understanding of the existing and futurerequirements of the Wilmot Fire Department. Referencing best practices, including relevant standardsand legislation, this report was prepared by completing an assessment of the following departmentaladministrative and operational components:

Governance, legislation, by-laws and administration;Fire prevention and public education;Firefighter staffing and service agreements;Emergency response;Firefighter training;Apparatus, equipment and maintenance;Dispatch and communications; andBudgets and revenues.

The Fire Master Plan was developed with a broad and comprehensive stakeholder consultation program.This included interviews with fire department and Township staff, roundtable discussion sessions with thevolunteer firefighters at each of the three fire stations and continuous consultation with the Township’sSteering Committee.

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

1 Population in 2011: 19,233, Statistics Canada, 2011 Census


1.0 IntroductionPage - 2

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

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

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

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

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


2.0 LegislationPage - 3

2.0 LEGISLATION

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

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

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

I. Public Education and Prevention;

II. Fire Safety Standards and Enforcement; andIII. Emergency Response.

To further assist municipalities the OFM has identified within previous reports the following furtherdescription of each line of defence:

I. Public Education and Prevention:

Educating residents of the community on means for them to fulfill their responsibilities for their own firesafety is a proven method of reducing the incidence of fire. Only by educating residents can fires beprevented and can those affected by fires respond properly to save lives, reduce injury and reduce theimpact of fires; and

II. Fire Safety Inspections and Enforcement:Ensuring that buildings have the required fire protection systems, safety features, including fire safetyplans, and that these systems are maintained, so that the severity of fires may be minimized; and

III. Emergency Response (Suppression):

Providing well trained and equipped firefighters directed by capable officers to stop the spread of firesonce they occur and to assist in protecting the lives and safety of residents. This is the failsafe for thosetimes when fires occur despite prevention efforts.

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



PART I: DEFINITIONS 1.(1) In this Act, “Fire protection services” includes fire suppression, fire prevention,fire safety education, communication, training of persons involved in the provisions offire protection services, rescue and emergency services and the delivery of all thoseservices

PART II: RESPONSIBILITYFOR FIRE PROTECTIONSERVICESMunicipal responsibilities

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

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

Review of municipal fireservices

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

Fire chief, municipalitiesResponsibility to council

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

PART III: FIRE MARSHALPowers of Fire Marshal

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

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

2.2 Office of the Fire Marshal, OntarioAs indicated above, the OFM has a role to both assist municipalities through interpretation andenforcement of the FPPA, and to develop training programs and evaluation systems.

One of these roles includes the review of compliance with the minimum requirements of a CommunityFire Safety Program, which must include:

a smoke alarm program with home escape planning;

the distribution of fire safety education material to residents/occupants;

inspections upon complaint or when requested to assist with code compliance(including any necessary code enforcement); and

a simplified risk assessment.



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

An excerpt from the background section of PFSG 00-000-01 provides further clarification to the OFMinterpretation of the FPPA and municipalities responsibilities:

“Municipalities are compelled to establish a program in the municipality which must includepublic education with respect to fire safety and certain components of fire prevention. The actalso states that municipalities are responsible for arranging such other fire protectionservices as they determine may be necessary according to their own needs and circumstances.The relationship between the province and municipalities is based on the principle thatmunicipalities are responsible for arranging fire protection services according to their ownneeds and circumstances”.

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

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

2. There are many ways in which individual needs and circumstances can be addressed.Therefore, municipalities require flexibility to employ different strategies to achievesimilar objectives.

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

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

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

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


3.0 Community Risk ProfilePage - 6

3.0 COMMUNITY RISK PROFILEThe Office of the Fire Marshal, Ontario’s (OFM) Fire Risk Sub-model2 introduces the importance ofcommunity risk in the following paragraph:

“Assessing the fire risk within a community is one of the seven components that comprise theComprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing therelevant factors that characterize the community and applying this information to identifypotential fire risk scenarios that may be encountered. The assessment includes an analysis of thelikelihood of these scenarios occurring and their subsequent consequences.”

Community fire risks are further explained in detail within the OFM’s Fire Risk Sub-model as follows:

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

Assessing fire risk should begin with a review of all available and relevant information thatdefines and characterizes your community. Eight key factors have been identified that contributeto the community’s inherent characteristics and circumstances. These factors influence eventsthat shape potential fire scenarios along with the severity of their outcomes:

Property StockBuilding Height and AreaBuilding Age and ConstructionBuilding ExposuresDemographic ProfileGeography/Topography/Road InfrastructurePast Fire Loss StatisticsFuel Load

Utilizing the framework provided within the OFM’s Fire Risk Sub-model provides the opportunity toassess the potential fire risk scenarios that may be present by creating a Community Risk Profile. Theprofile can then be used to assess the current level of fire protection services provided, and identify whereif any potential gaps exist, or areas that a municipal Council may want to consider in determining its ownneeds and circumstances as defined by the FPPA.

This section contains a summary of the observations from each of the categories contained within thecommunity risk profile and assessment. The detailed Community Risk Assessment is contained withinAppendix A.

2 Source: Comprehensive Fire Safety Effectiveness Model, Fire Risk Sub-Model, June 2009 Office of the FireMarshal, Ontario



3.1 Summary of Community Risk ProfileIn summary, the Township of Wilmot represents the typical level of risk that would be found incomparable municipalities within the Province of Ontario. These include smaller urban centressurrounded by large tracts of agricultural and environmentally protected areas forming a largercommunity. The geography, topography and road infrastructure are also consistent with those of similarcommunities. The road network layout is primarily a grid pattern of arterial rural roads and local roadsadjacent to Highway 7/8.

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

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

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

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

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

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

The GIS model was also used to approximate existing and future geographic coverage of the existing riskzone areas. Under existing conditions, 100% of high risk geography, 38% of the moderate risk geographyand 24% of the low risk geography is covered within four minutes of predicted travel time. This scenarioalso results in 92% of the moderate risk zones and 90% of the low risk zones being covered within the tenminute predicted travel time. The detailed methodology and results (including figures) from the GISmodeling of the Risk Profile are contained within Appendix A.



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


4.0 Administration DivisionPage - 9

4.0 ADMINISTRATION DIVISIONThe Wilmot Fire Department operates as a composite department. It is comprised of a full-time FireChief, one part-time Fire Prevention Officer and volunteer firefighters (part-time suppression staff).Under the leadership of the full-time Fire Chief the department has a long history of providing fireprotection services through the use of volunteer firefighters, from three fire stations. The currentcomplement of volunteer firefighters has continued this tradition of dedication and commitment toattaining a high level of efficiency and effectiveness in the services they provide to the communitieslocated within the Township.

The Administration Division and ultimately the Fire Chief, oversees and monitors the resources andoperations of the suppression, prevention and public education, and firefighter training functions of thedepartment. The Administration Division is responsible for the preparation and management of budgets inaddition to personnel management, resource management and records management for the overall firedepartment.

4.1 Department ServicesThe fire department is organized into the following five major functions to provide service to theTownship of Wilmot:

Fire prevention (e.g. fire safety inspections, by-law enforcement, public education, and fireinvestigation);Emergency operations (e.g. structural, vehicle, and wild land fire suppression services,emergency patient care, hazardous material incident response, and special rescue services);Training and staff development (e.g., ensuring all staff acquire and maintain the necessaryknowledge, skills and abilities to perform the job function);Technical maintenance (e.g. ensuring all apparatus and equipment is inspected regularly andmaintained); andAdministration and support services (e.g. maintaining adequate resources to effectively providesupport to all departmental activities).



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

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

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

Figure 1: Department Organizational Chart

CAO

Fire Chief AdministrativeAssistant

Fire PreventionOfficer

District ChiefStation #1



Senior Captain Senior Captain Senior Captain

Captains Captains Captains

Firefighters Firefighters Firefighters

Council

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



4.3 Department Management Team

4.3.1 Fire ChiefAs the head of the fire department, the Fire Chief is responsible for administration and operations of theWilmot Fire Department, including the delivery of Fire Protection Services. The Fire Chief reports toCouncil through the Township’s Chief Administrative Officer (CAO). Within the Wilmot FireDepartment job description document prepared by the Township in 2002, the scope of the position andsummary of duties is as follows:

Member of the senior management team; andResponsible for the Administration of the Fire Department and Emergency Planning. Worksalong with other members of the management team in fulfilling the corporate responsibilities ofthe Municipality. Works within the confines of the Fire Protection and Prevention Act 1997, andMunicipal By-laws to establish and regulate a Fire Department.

Examples of the primary responsibilities of the Fire Chief include the following:

Prepare, present and administer the fire department budget.Plan, co-ordinate and direct the firefighting, fire prevention, rescue, and life and property savingfunctions in the municipality.Report to and take command at major incidents.Supervise all fire prevention activities.Supervise the training programs, and assist in the development of these programs.Maintain discipline and high moral in the department.Prepare specifications for major equipment and call for tenders.Purchase all major equipment and ensure proper maintenance of same.Ensure that all stations are maintained and kept in good repair.Attend conferences and seminars to keep abreast of changes in equipment and methods ofoperations, to ensure that the department will maintain, and where possible, will improve thelevel of service to the municipality.Recommend to Council, the hiring of personnel as required to maintain the manning level of eachstation.Submit ‘Standard Incident Reports’ to the Fire Marshal’s Office for every incident.Investigate and report cause of fire to proper authorities.Revises the Emergency Plan and ensures that it is in compliance with Provincial legislation.

4.3.2 District ChiefsDistrict Chiefs report to the Fire Chief and are directly responsible for overseeing the operations forfirefighters and the overall management of personnel on a daily basis for a respective fire station. Withinthe Wilmot Fire Department job description document prepared by the Township in 2007, the scope ofthe position and summary of duties is as follows:

Member of the fire department management team; and

Responsible for the Administration of his/her assigned fire station. Works along with otherofficers and members in fulfilling the corporate responsibilities of the Department. Works withinthe confines of the Fire Protection and Prevention Act 1997, and Municipal By-laws to establishand regulate a Fire Department.



Examples of the primary responsibilities of a District Chief include the following:

Co-ordinates and directs firefighting, rescue, and life and property saving functions, and respondsto enquiries and complaints from the public as required.Reports to and takes command at fire and medical emergency scenes and ensures that incidentmanagement procedures are put in place in accordance with department standard operatingprocedures.Ensures ‘Standard Incident Reports’ are completed for every incident.Performs preliminary investigation of the cause of fires and reports to the Fire Chief immediatelyif the cause is undetermined or suspicious in nature. Assists the Fire Chief and Chief FirePrevention Officer with further investigation as required.Supervise the training programs, and assist in the development of these programs.Maintains discipline, high moral, and encourages cooperation between all department personnel.Confers with the Fire Chief to ensure that the activities of the department are consistent with thegoals and objectives of the municipality as established by Council.Meet regularly with the Senior Captain and other officers to ensure that they are following theprocedures and goals of the department.Preparation and updates of pre-fire plans for major occupancies in his/her response area.Conducts recruitment programs and recommends the hiring and or promotion of personnel to theFire Chief.Attend District Chief's meetings.

Based on interaction with the three current District Chiefs as part of this review process our observationsconclude that individually they provide progressive and positive leadership to their respective stations.Together they provide a unified leadership team that supports the Fire Chief and the overalladministration of the department.

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

The Fire Chief and CAO have been utilizing this authority effectively by assigning one of the DistrictChiefs to carry out the role of Deputy Fire Chief when the Fire Chief is on vacation or otherwise notavailable.

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

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



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

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

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

4.4 Administrative WorkspaceThe existing administrative workspace capacity is adequate for the current staff volume. Future staffingexpansions (e.g. additional staff) could not be accommodated without providing additional workspace.

4.5 Annual ReportOngoing evaluation and monitoring of the level of fire protection services provided by the fire departmentin consideration of the evolution of risk within the community are the foundation for sustaining aneffective and appropriate level of service to meet the community needs.

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

This current practice of preparing an annual summary report to inform Council on the performance of thedepartment and to identify where new trends may be evolving, or new programs may be required reflectsbest practices in sustaining a responsive and effective level of fire protection services for the community.The fire department also completes and submits Annual Compliance Reports to the Office of the FireMarshal, Ontario.

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



4.6 By-laws & Agreements

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

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

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

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

4.6.2 Mutual Aid Agreements

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

There are two main scenarios when mutual aid agreements are enacted:

1. When a fire department is on-scene at an emergency, has received information thatimmediate assistance is required, it may ask for mutual aid assistance from a neighbouringfire department.

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

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

4.6.3 Automatic Aid Agreements (Fire Protection Agreements)

In contrast to mutual aid agreements, automatic aid agreements are programs designed to provide and/orreceive assistance from the closest available resource, irrespective of municipal boundaries, on a day-to-day basis.

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



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

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

The Township of Wilmot provides fire protection services to the Township of Blandford-Blenheimthrough a fire protection agreement including firefighting, extrication services and medical assistanceresponses to a defined area of the Township of Blandford-Blenheim identified within By-LawNo. 2010-02. Our review indicates that this is an appropriate agreement for this area of the Township ofBlandford-Blenheim.

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

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

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

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

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Wellesley

Woolwich

Kitchener

North Dumfries

Waterloo

Cambridge

TOWNSHIP OF WILMOTFIRE MASTER PLAN

Automatic Aid

FIGURE # 2

0 1 20.5 km ²SCALE 1:100,000

MAP DRAWING INFORMATION:DATA PROVIDED BY MNR

MAP CREATED BY: JJAMAP CHECKED BY: SCMAP PROJECTION: NAD 1983 UTM Zone 17N

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

PROJECT: 12-6148

STATUS: DRAFT

DATE: 08/31/12

Low Risk

Moderate Risk

Extreme Risk

Existing Fire Station!>

Travel Times

4 min @ Network Speed







High RiskStation 1Baden

Station 3New Hamburg

Station 2New Dundee

Waterloo FD(Station 2)Full-Time

St. Clements FD(Wellesley Station 2)

Volunteer

Wellesley FD(Wellesley Station 3)

Volunteer Potential Automatic Aid Fire Station!>

Kitchener FD(Station 5)Full-Time

Kitchener FD(Station 7)Full-Time

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

The information presented below provides an overview of the current tiered response agreement:

“In addition to notifications required under CACC SOP 11, the Wilmot Township Fire Departmentagrees to respond to select Code-4 medical emergencies (Criteria listed in Appendix A) within theTownship of Wilmot, for the purpose of providing medical first response as tiered by the CambridgeCentral Ambulance Communications Centre on behalf of The Regional Municipality of Waterloo,Emergency Medical Services (EMS):

a. Cambridge Central Ambulance Communications Centre (CACC) will tier the Wilmot Township FireDepartment automatically utilizing EMS-TIF, if applicable, and in any case within sixty (60) secondsof committing the call to the CACC System for all call types identified in Appendix A attached hereto.

b. Cambridge CACC will not tier the Wilmot Township Fire Department to Nursing Homes, MedicalClinics, Medical Facilities or Retirement Homes where there is a Medical Doctor (MD), RegisteredNurse (RN) or Registered Practical Nurse (RPN) on scene with access to oxygen.

Exception: All Vital Sign Absent calls will be tiered regardless if there is a MD, RN or RPN onscene with access to oxygen.

c. This agreement acknowledges that fire emergencies take precedence over requests for tieredresponse, but the Wilmot Township Fire Department will respond to the identified criteria if notalready engaged.

d. During emergencies declared under the Region’s emergency plan or local municipal emergencyplans, the declared emergency takes precedence and may preclude response to tiered response calls.”

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

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



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

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

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

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

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

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

4.8 Departmental Policies and Standard Operating GuidelinesBest practices within the Ontario fire service reflect the use of department policies as the appropriate toolto communicate specific direction to all staff. In comparison to standard operating guidelines, whichprovide a framework to guide decision making, department policies reflect more stringent and definedpractices that minimizes variance from the directive given. An example of a fire department policy wouldbe a “Respect in the Workplace Policy” where specific direction is given to all members of the departmentthat reflects the policy of the department in consideration of relevant legislation governing the topic.

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

enhance safety;increase individual and team effectiveness;improve training efficiency;improve orientation for entry-level staff;improve risk management practices;prevent / avoid litigation;



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

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

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

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

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

4.9 Departmental Records ManagementThe department is in the process of implementing FirePro computer software as the digital recordsmanagement platform. The FirePro software includes specific records management applications for themajor areas of the fire department including fire prevention and education, training, apparatus andequipment maintenance, and components of emergency response.

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

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

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



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

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

Emergency Management Ontario (EMO) has developed a core emergency program, with elementsfocused on supporting emergency preparedness and response activities. The program requiresdesignating an Emergency Management Coordinator (EMC), having a written emergency response planand forming a program committee. Part II of the Ontario Regulation 380/04 lays out the MunicipalStandards for emergency management. There are six main standards, relating to:

Emergency Management Program Coordinator;

Emergency Management Program Committee;

Municipal Emergency Control Group;

Emergency Operations Centre;

Emergency Information Officer; and

Emergency Response Plan.

The emergency plan is designed in a generic fashion which allows it to respond to situations that areunexpected and require a coordinated response and recovery. The plan is based on a hazard identificationand risk assessment (HIRA), which is a required component under the Emergency Management and CivilProtection Act.

The plan also includes a primary Emergency Control Group and Emergency Support Group, whichconsists of all of the significant stakeholders responsible for managing the community and adjacent areas.This group would be assembled, if the emergency plan is activated, to approve the decisions required tocontrol situations that arise during an emergency.

Within the Township of Wilmot, the Fire Chief has been assigned the role of Community EmergencyManagement Coordinator (CEMC), which requires on-going leadership in maintaining, testing andtraining of the emergency response plan. The Emergency Management Coordinator is responsible for theoverall implementation the emergency management program, and is required to report to the Ministry’semergency management program committee on his/her work. The Township received a letter from theMinistry of Correctional Services on March 15, 2012 indicating that it had successfully completed themandatory emergency management elements required by the Act.

The Emergency Management Program for the Township of Wilmot is established through By-law No.2004-45, “A by-law to establish and emergency management program for the protection of public safety,health, the environment, the critical infrastructure, and property, and to promote economic stability and adisaster-resilient community.”



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

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

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

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

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

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

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

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

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

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

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

3. The annual summary report prepared by the fire department include an updated CommunityRisk Profile to provide the CAO and Council with further information to monitor the servicesprovided by the fire department.



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

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

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


5.0 Fire Prevention & Public EducationPage - 23

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

The Office of the Fire Marshal, Ontario (OFM) describes the minimum requirement for a community firesafety program as including:

a smoke alarm program with home escape planning;

the distribution of fire safety education material to residents/occupants;

inspections upon complaint or when requested to assist with code compliance (including anynecessary code enforcement); and

a simplified risk assessment.

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

5.1 Comprehensive Fire Safety Effectiveness ModelThis Division is responsible for coordinating the initiatives of the Wilmot Fire Department to optimize theimpact of applying the first two lines of defence identified within the Ontario Fire Protection Modelincluding:

Public Education and PreventionFire Safety Standards and EnforcementEmergency Response

Best practices of other municipalities within the province have shown that optimizing the effortsdedicated to these lines of defence can have a positive impact on reducing emergency call volume, andincreasing the overall level of fire protection within the community.

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

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



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

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

Table 1: Fire Prevention and Public Education Activities

Activity / Program Name Time Commitment

Inspections, Re-inspections 70%

Inspection on Complaint or Request 20%

Public Education 10%

Time commitment for the FPO is 21 hours a week. 100%

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

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

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

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



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

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

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

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

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

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

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

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

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



Table 2: Township of WilmotFire Inspection Performance Measures

OccupancyClassification

(OBC)Buildings

CurrentInspection

Target(Performance

Measure)

Group A – Assembly Schools, Recreation Centres (Arenas), Curling/Golf Centres Annually

Group A – Assembly Licensed Properties, Nursery/Day Care Facilities, Churches,Special Occasion Permits

Upon Request

Group B – Institutional Hospital, Nursing homes, Homes for Special Care Annually

Group C – Residential Apartments regulated by Part 9.3 of the OFC

Apartments regulated by Part 9.5 of the OFC

Apartments regulated by Part 9.8 of the OFC

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

Home Inspection Program

Annually

Annually

Annually

Annually

Upon Request

Group D - Business Business and Personal Services Occupancies Upon Request

Group E - Mercantile Mercantile Occupancies Upon Request

Group F - Industrial Factories and Complexes Upon Request

5.2.2 Fire InvestigationsThe fire department is required by the FPPA to conduct fire investigations to determine the origin andcause of all fires and report this information to the OFM. Subject to the severity of the incident andfactors such as a fatality or large dollar loss the OFM will assign a fire investigator to conduct theinvestigation. Currently the FPO supports the Fire Chief when available to conduct fire investigations.Although this is not a high frequency task it can be a time-consuming and extended process on the part ofthe FPO or alternatively the Fire Chief.

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

5.2.3 Fire Safety PlansThe FPO has a level of participation in reviewing fire safety plans required by the Ontario Fire Code. Onoccasion, if requested by the building department, the FPO will conduct a fire safety inspection prior tooccupancy. New construction plans are not a large area of workload for the FPO.

The priorities of the department with regards to prevention and education are summarized in Table 3.



Table 3: Fire Prevention and Public Education Priority Setting Worksheet

Priority Status Effectiveness, Goals/Objectives

Fire Safety Priority

(In order of Priority)

Current fire prevention / public education programmes that address the fire safety priority

Existing programmes ensure compliance with minimum FPPArequirements?

Options for enhancement / improvement to address the fire safetypriorities & community risk

Fire Prevention (Inspection) Activities Public Education Activities Y/N Fire Prevention Activities Public Education Activities

1) Children Group homes, schools, etc. Inspected annually All children in Grades 2, 4 and 6 bussed to classes at Children’sSafety Village annually. (400 plus students per year)Various school groups, brownies, boy scouts, etc. Tour firestations on request.

Y Inspect schools & assemblyoccupancies annually.

Enhance quality and quantity of publiceducation programs delivered at localschools.

2) Seniors Seniors homes and apartments inspected annually. Fire Safety presentations done for Seniors groups on request. Y Inspect institutional occupancies& apartments annually.

Develop & deliver public educationprograms (e.g. Older and Wiser) andtarget vulnerable / aging communities.Enhanced home smoke alarmprogram.

3) All Residents Inspections carried out on complaint or request Annual open house held at one of the fire stations, on arotational basis.Newspaper ads for fire safety reminders such as checkingsmoke alarms, special holiday fire safety tips.Distribute educational materials during the open houses, andwhen visits to the stations occur.

Y Inspect assembly occupanciesannually. Inspect higher densityresidential (apartments, hotels,etc.) annually.Home Inspection Programcontinues upon request.

Enhance existing smoke alarmprogram by delivering a home smokealarm program. Aim to reach allresidences in Township on three orfour year cycle, prioritizing higher riskareas first.Enhance community-wide publiceducation programming, according torisk areas.

4) Industrial / Commercial? Inspections done on complaint or request. Attempt to inspectmore as time permits, but no schedule.

Occasional assistance provided to train staff in fire safety. Thisis done on request, and if time permits.

Y Inspect industrial occupanciesannually.

Develop and deliver programs (e.g.fire extinguisher training). Deliverupon request / consider fee for serviceoptions.



5.2.4 Public Education ProgramsThe Wilmot Fire Department acknowledges the benefits and importance of providing fire and life safetypublic education programming to Township’s residents.

Currently, it is the responsibility of the FPO to prepare and evaluate the public education program of thedepartment. The core public education programs that are implemented across the Township of Wilmot areas follows:

Smoke Alarm Program;

Safety Village School Program; and

Presentations to seniors’ homes.

The Township of Wilmot has a valuable public education resource available with the Children’s SafetyVillage. This facility is located on the campus of Waterloo Regional Police Headquarters at 200 MapleGrove Road in Cambridge, only approximately 25 kilometres away from Wilmot’s Township Offices.The Children’s Safety Village hosts and facilitates hands-on fire safety education for elementary schoolchildren. The Mission Statement is:

“The Children’s Safety Village is committed to providing quality progressive safety programs, in apositive and interactive atmosphere, through community partnerships, to protect our most valuableresource… our children.”

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

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

Year Grade # Classes # Students

2011

Grade 6 3 64

Grade 4 1 28

Grade 2 10 212

Total 14 304

2010

Grade 6 6 151

Grade 4 5 102

Grade 2 8 172

Total 19 425

2009

Grade 6 5 140

Grade 4 6 142

Grade 2 7 139

Total 421



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

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

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

We recommend the implementation of the position of Public Education/Training Officer within the short-term horizon of this FMP as an initial contract position (21 hours per week). In our view this positionshould then transition to a full-time position during the mid-term horizon of this FMP.

Optimization of the volunteers in delivering public education is contained within the smoke alarmprogram section of this report. Further analysis to support the recommended position of PublicEducation/Training Officer is contained within the Training Division section of this report.

5.2.5 Smoke Alarm ProgramOne of the legislated requirements of the FPPA is the delivery of a Smoke Alarm Program. Achievingcompliance with the provincial smoke alarm requirements has been a challenge for fire departmentsacross Ontario. As a result of many recent fire tragedies, the OFM has introduced a “zero tolerancepolicy” for occupancies requiring smoke alarms.

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

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

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

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



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

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

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

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

5.5 Fire Prevention/Public Education Division Summary andRecommendations

The Township of Wilmot currently carries out fire prevention enforcement and public fire safetyeducation programs, within the guidelines of the Fire Protection and Prevention Act, 1997 (FPPA), and ismeeting the legislated responsibilities of the FPPA.

The current workload of the Fire Prevention Officer is appropriately targeted at fire inspections based onthe conclusions of the Community Risk Profile. This provides a limited amount of time to develop anddeliver a public education program that also responds to the conclusions of the Community Risk Profile.

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

As a result of our review and assessment of the Fire Prevention and Public Education Division werecommend that:

1. The new position of Public Education / Training Officer be implemented within the short-termhorizon of this Fire Master Plan initially as a contract position (21 hours per week).

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

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

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



5. The Fire Chief and Fire Prevention Officer review OFM Technical Guideline OFM-TG-01-2012 “Fire Safety Inspections and Enforcement” and where required revise or develop newStandard Operating Guidelines for the department.

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

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


6.0 Fire SuppressionPage - 32

6.0 FIRE SUPPRESSIONThe Township of Wilmot shares the characteristics of many primarily rural / agricultural communities inOntario that include small urban centres surrounded by large sections of rural geography. Providingemergency response in these rural municipalities in the form of firefighting resources that couldeffectively mitigate a fire in a timely manner can be difficult and challenging. Travel distances and watersupply are only two factors that can impact the ability to provide this type of mitigation within anestablished time frame.

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

6.1 Emergency ResponseThe Comprehensive Fire Safety Effectiveness Model recognises the high importance of the first two linesof defence in mitigating the potential of a fire occurring. In the event a fire does occur and emergencyresponse is required the model defines the third line of defence as:

“III. Emergency Response (Suppression):

Providing well trained and equipped firefighters directed by capable officers to stop the spread offires once they occur and to assist in protecting the lives and safety of residents. This is thefailsafe for those times when fires occur despite prevention efforts.”

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

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

To assist in the evaluation of the level of fire suppression resources required by the Township of Wilmotthis study identified the different guidelines and standards that are currently relevant within Ontario.Through comparison of each with a typical fire scenario this analysis presents insight into the industrybest practices based on a risk-based approach.

6.2 Fire Suppression Performance TargetsTo assist in determining the level of fire suppression resources required by Township of Wilmot and theWilmot Fire Department, Appendix B provides a detailed evaluation of the current fire suppressionstaffing guidelines and standards utilized across Ontario.

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



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

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

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

Determining an appropriate travel time performance target for both the initial response and depth ofresponse is the second major component of determining fire protection service levels. PFSG 04-08-12does not contain a specific performance target for travel time in comparison to those in NFPA 1710 and1720. Travel times for emergency response vehicles can be impacted by many factors such as trafficcongestion, traffic management systems (including traffic lights and stop signs), and extended traveltimes due to large geographic areas.

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

In summary, identifying travel time performance targets should be a decision considered by Council inresponse to the Community Fire Risk Profile, and community needs and circumstances as defined by theFPPA.

In summary the evaluation concludes the following:

Initial Response:

Initial response is consistently defined as the number of firefighters initially deployed to respond to anincident. Fire service leaders and professional regulating bodies have agreed that until a sufficientnumber of firefighters are assembled on-scene, initiating tactics such as entry into the building to conductsearch and rescue, or initiating interior fire suppression operations are not safe practices. If fewer thanfour firefighters arrive on scene, they must wait until a second vehicle, or additional firefighters arrive onscene to have sufficient staff to commence these activities.

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

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



The assembly of four firefighters on the fire scene provides sufficient resources to safely initiate somelimited fire suppression operations. This first crew of four firefighters is also able to conduct the strategicoperational priority of “size-up” whereby the Officer in-charge can evaluate the incident and wherenecessary, request an additional depth of resources that may not have been dispatched as part of the initialresponse.

Depth of Response:

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

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

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

The strategy to dispatch a higher number of firefighters as part of the initial response to a high or extremelevel of risk occupancy can be achieved in a number of ways. These include:

Dispatching of additional staff and apparatus from the same fire departmentCall back of firefighters (full-time or volunteers) to staff additional apparatusFire Protection Agreements (Automatic Aid Agreements) with other fire departments to provideadditional firefighters and apparatus.

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

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

The department has implemented a progressive approach to responding to medical calls as a volunteerdepartment. For medical emergency responses, a special medical page alerts a maximum of eightfirefighters to respond. A single vehicle is staffed with these personnel to respond to the medical call.This technique provides the appropriate level of service to meet the needs of the type of call and reducesthe overall strain and burden that large volumes of medical calls can put on a volunteer fire departmentmodel.



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

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

Figure 3: Current Initial Response Coverage Areas



6.3.2 Depth of Response AreasThe department currently utilizes dispatch protocols to assign the depth of resources based on historicalcall data and geography. The current deployment strategy for depth of response has served the communitywell and provides a solid foundation for the proposed optimization strategy to achieve 14 firefighterswithin a revised depth of response dispatch protocol.

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

Figure 4: Current Depth of Response Coverage Areas

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



The NFPA 1710 and 1720 Standards identify travel time as a performance indicator for measuring bothinitial response and depth of response. For example, NFPA 1710 prescribes the depth of responseperformance target of 14 firefighters arriving on scene within a travel time of 8 minutes to an objective of90% of incidents. PFSG 04-08-10 Operational Planning: An Official Guide to Matching ResourceDeployment and Risk authored by the OFM does not contain a specific travel time performance objective.

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

At present the Wilmot Fire Department does not track the arrival time of assembling 14 firefighters onscene. Based on our experience this is not uncommon in comparable municipalities across Ontario.Implementing new dispatch protocols to deploy a depth of response of 14 firefighters assigned to theappropriate apparatus will assist in providing the ability to track this performance target.

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

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

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

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



6.3.4 Call VolumeA summary of the volume of emergency calls in the Township Wilmot for the period 2007 to 2011 ispresented in Figure 5. Over this period the department has experienced relatively consistent call volumeswith the largest variance being 13% in terms of the number of emergency calls. There is an average of649 calls per year over the five year period.

Figure 6 summarizes the annual call volumes at each of the three fire stations within the municipality.Baden Station has the highest five year average annual call volume at 282 calls. New Hamburg Stationhas historically experienced the second highest call volume, with a five year average of 266 calls. NewDundee has experienced a five year average of 101 calls per year. In 2011 New Hamburg Stationexperienced its average call volume, while the other two stations’ annual call volumes were slightlyhigher than their respective averages.

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

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

700638 608 620 678

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20072008200920102011



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

The fire-related calls represent approximately four percent of the total calls. Medical calls are the mostfrequent type of emergency response call and comprise approximately 50 percent of the total calls.Figure 7 provides a breakdown of the call volume by type for the years 2007 to 2011.

Table 5: Summary of Incident Types

Incident Type1 2007 2008 2009 2010 2011

Medical 350 321 306 301 344

MVC 70 54 55 45 58

Fire 49 28 39 11 25

Other 231 235 208 263 251

Total 700 638 608 620 678

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

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

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The majority of the emergency calls within the Township that the fire department responds to are medicalcalls. The percentages of calls by type are shown in Figure 8. Medical calls comprise 50% of thedepartment’s call volume. The department also responds to a large percentage of motor vehicle accidentsand alarms, as these each comprise 8% of the department’s overall call volume. Other calls, notcontained within the listed five specific categories comprise 29% of the department’s calls. Fire callscomprise only 4% of the department’s calls. These percentage breakdowns of calls are typical withinthe industry for a department and Township such as Wilmot.

Figure 8: Percentage of Calls by Type

4%

50%

8%

8%1%

29%

Percentage of Calls by Type (2007-2011)

Fire (4%)

Medical (50%)

Motor Vehicle Accidents (8%)

Alarm (8%)

Rescues (1%)

Other (29%)



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

Figure 9: Calls by Type - Baden Station

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

Figure 10: Calls by Type, New Dundee Station

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

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Figure 11: Calls by Type, New Hamburg Station

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

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6.3.7 Total Response TimesTotal Response Time is noted within NFPA 1720 (Table 4.3.2 Staffing and Response Time) as follows:

“Response time begins upon completion of the dispatch notification and ends at the time intervalshown in the table.”

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

Table 6: NFPA 1720 Table 4.3.2 Staffing and Response Time

Demand Zones DemographicsMinimum # of

FirefightersResponding

Response Time(Turnout +Travel) inMinutes

Urban Area >1000 people per square mile 15 9

Suburban Area 500-1000 people per squaremile

10 10

Rural Area <500 people per square mile 6 14

Remote Area Travel Distance + or – 8 miles 4 Dependent upontravel distance

Special Risks To be determined by firedepartment

To bedetermined byfire department

Determined byauthority having

jurisdiction



Figure 12 presents a summary of historical response times for the first arriving vehicle from 2007 to2011. The response time for this first response is calculated as the sum of turnout time and travel time.Township of Wilmot five year average 90th percentile total response times are approximately 450 seconds(7 ½ minutes) for medical calls and approximately 520 seconds (8 ¾ minutes) for fire / other calls. Theseresponse times measure well against the NFPA 1720 response times of 9 minutes in urban areas, 10minutes in suburban areas and 14 minutes in rural areas. The important component is that 1720 is aimingto assemble a depth of response in the listed response times. The data presented in Figure 12 representsthe first responding vehicle response time. Therefore the department would require multiple apparatus(two to four vehicles depending on staffing) arriving simultaneously within the urban and suburban areasto meet the NFPA 1720 standard. As multiple stations and apparatus are dispatched to fire calls, weconsider it very probably that Wilmot is achieving this level of staffing and response within Wilmot’surban and suburban areas. The rural areas are considered to be meeting the staffing and response with theinitial arriving vehicles (depending on vehicle staffing).

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

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

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

FireDepartment 2007 2008 2009 2010 2011 AverageFire 747 952 798 707 797 524Medical 649 707 703 701 701 448Other 777 762 771 902 895 522

Baden 2007 2008 2009 2010 2011 AverageFire 781 955 853 648 904 573Medical 767 798 846 848 809 527Other 796 757 765 930 915 537

New Dundee 2007 2008 2009 2010 2011 AverageFire 656 600 732 375 624 473Medical 701 742 660 672 642 442Other 911 900 894 1081 1097 607

New Hamburg 2007 2008 2009 2010 2011 AverageFire 666 807 534 707 534 471Medical 503 559 578 548 566 402Other 572 691 707 668 669 464

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

In comparison the NFPA 1221 – Standard for the Installation, Maintenance, and Use of EmergencyServices Communications Systems, defines Dispatch Time as:

“Emergency Alarm Processing / Dispatching: A process by which an alarm answered at thecommunications centre is transmitted to emergency response facilities (ERFs) or the emergencyresponse units (ERUs) in the field.”



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

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

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

(Note: 2008 dispatch data is unavailable)

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

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

In comparison turnout time as defined by the NFPA, within the Standard for Organization andDeployment of Fire Suppression Operations by Career Fire Departments (NFPA 1710), as:

“the time interval that begins when the emergency response facilities (ERFs) and emergencyresponse unit (ERUs) notification process beings by either an audible alarm or visualannunciation of both and ends at the beginning point of travel time.”

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

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

Figure 14 presents a summary of Wilmot Fire Department’s historical turnout times from 2007 to 2011.The department responds with an average 90th percentile turnout time of less than 4.5 minutes. This isconsistent with best practices among volunteer fire departments comparable to Wilmot Township. Full-time firefighters are often compared to the NFPA 1710 standard for turnout time, which targets 80seconds for fire and special hazard calls and 60 seconds for medical calls. This would be an aggressivestandard to compare volunteer firefighters against.

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

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

Baden Station’s historic 90th percentile average turnout times are slightly below the department average orfire calls and other calls and slightly above the average for medical calls. New Dundee Station’s historic90th percentile average turnout times are slightly below the department’s average for fire, medical andother calls. New Hamburg Station’s historic 90th percentile average turnout times are slightly below thedepartment average for medical calls and slightly higher for fire and other calls.

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

FireDepartment 2007 2008 2009 2010 2011 AverageFire 288 382 298 340 316 245Medical 323 348 377 352 350 247Other 322 374 393 370 377 256

Baden 2007 2008 2009 2010 2011 AverageFire 279 422 298 352 309 242Medical 339 333 384 384 334 261Other 322 378 369 373 358 253

New Dundee 2007 2008 2009 2010 2011 AverageFire 277 277 281 192 345 221Medical 261 281 300 299 297 222Other 329 324 347 379 435 245

New Hamburg 2007 2008 2009 2010 2011 AverageFire 287 322 242 328 305 264Medical 307 359 374 347 356 246Other 313 375 416 357 377 267



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

In comparison the NFPA 1710 standard defines travel time as:

“The time interval that begins when a unit is en route to the emergency incident and ends whenthe unit arrives at the scene.”

Historical (2007-2011) 90th percentile travel times for the department are summarized in Figure 15. Fireand medical calls travel times have remained fairly consistent other than the dip in fire call travel time in2010. Travel times for other calls have been on an increasing trend. In 2011 the 90th percentile traveltime to fire calls was nine minutes, which is slightly higher compared to the best practices identifiedwithin the suppression performance targets (Appendix B) of 8 minutes, however, it is recognized that thesize of Wilmot Township will result in longer travel distances to rural calls and therefore longer traveltimes. These longer travel times are primarily a result of the travel times required to reach the outlyingrural areas within the Township.

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

6.4 Existing Fire Suppression Services

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

0

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

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

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

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

The current Council approved complement of volunteer firefighters for each of the three fire stations is25. This represents a total combined complement of 75 volunteer firefighters within the department. Ouranalyses of the actual current complement of volunteer firefighters indicates that other than the NewDundee station the other stations are able to remain relatively close to their Council approvedcomplement. There are however times when due to vacancies and scheduling of recruitment and trainingprograms the other stations also operate below their Council approved complement.

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

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

This recommendation is targeted at achieving the following objectives:

1. Maintaining a minimum complement of 25 volunteer firefighters at all stations at all times;

2. Increasing the number of volunteer firefighters available during weekly daytime (normalbusiness hours) time period at all stations;

3. This strategy would provide the flexibility to the fire department management team to managethe assignment of the volunteer firefighter complement proposed (90) as a whole rather thanby the current (25) per station.



Figure 16: Average Depth of Response Staffing

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

6.5 Medical CallsBased on our review of all emergency calls for the period 2007 to 2011 response to medical callsrepresented 50% of the responses. This percentage is consistent with the level of response by many othercomparator fire departments across the province.

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

Excerpts from the current tiered response agreement are indicated below to provide an overview of thecurrent level of fire department participation:

A tiered response will be requested within one (1) minute of EMS dispatch, and in conjunction with theresponse reference chart, for the following emergency requests for service:

1. Respiratory Arrest (Absence of Breathing)2. Cardiac Arrest (Absence of Pulse)

0

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3. Unconsciousness4. Motor Vehicle Collision with EMS attending

A tiered response will be requested within one (1) minute of EMS dispatch, and in conjunction with theresponse reference chart, when the EMS response time is anticipated to be greater than twelve (12)minutes for the following emergency requests for service:

1. Acute Chest Pain and/or Shortness of Breath/Difficulty Breathing (not on calls originating fromLTC, medical facility and/or other location with an available on-site EFR program or higherlevel of care)

Profuse and Uncontrolled Bleeding (not including nose, vaginal, rectal or catheter site bleeds and noon calls originating from LTC, medical facility and/or other location with an available EFR programor higher level of care).

In our view the current “Level A” tiered response agreement is consistent with best practices ofcomparable municipalities. It represents a well-coordinated fire/ambulance medical response The FireChief is monitoring and reporting on the level of participation as a result of responding to medical callsidentified within the current Tiered Response Agreement. This information is contained within thequarterly and annual summary reporting to Council. Considerations for revising the tiered responseagreement may be a strategy in the future to maintain the department’s call volume at a level which canbe sustained by the volunteer model.

6.6 Municipal Water SystemOur review of the municipal water system included a high level assessment of where municipal hydrantprotection is currently provided and where if necessary water supply would be required for firefightingthrough the use of water tankers.

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

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

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



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

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

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

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

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

6.7 Fire Suppression Division Summary and RecommendationsFor the period 2007 to 2011 the number of emergency calls that the department responded to remainedrelatively consistent. Responses to medical calls represented approximately 50% of these calls whereactual fire related calls represented only 4%. This experience is quite consistent with that of othercomparator municipalities.

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

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

As a result of our review and assessment of the Fire Suppression Division we recommend that:

1. A revised depth of response protocol to deploy a minimum of 14 firefighters based on moderaterisk occupancies as defined by the Community Risk Profile be implemented.

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



3. The complement of volunteer firefighters within the department be increased to 90 volunteerfirefighters; an increase of 15 over the current Council approved complement of 75. Thisrecommendation is targeted at achieving the following objectives:

Maintaining a minimum complement of 25 volunteer firefighters at all stations at all times;

Increasing the number of volunteer firefighters available during week-day daytime(normal business hours) periods at all stations;

Providing the flexibility to the fire department management team to manage theassignment of the volunteer firefighter complement proposed (90) as a whole rather thanby the current (25) per station. This could improve a situation such as the presentconditions in New Dundee when the recruitment of volunteers for daytime coverage ischallenging and there are opportunities to recruit volunteers at one of the other stations(available for daytime coverage), who could support the department and respond intodaytime calls in New Dundee. In our view the overall complement of the departmentshould be flexible to support this recruitment to more than 25 per station.

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

5. Subject to completion of training the fire department should apply for and participate in the“Superior Tanker Shuttle Accreditation” program offered by the Insurance UnderwritersAssociation.


7.0 Training DivisionPage - 55

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

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

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

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

This new position would include specific job competencies and experience related to the development anddelivery of training and public education programs within the fire service such as:

A certificate in Adult Education from a College of Applied Arts and Technology. Individualsassigned as Training Officers are expected to have significant knowledge and skills in adulteducation theory in order to perform their roles; the community college certificate ensuresachievement of the theory learning outcomes they need.Successful completion of applied course credits offered by the Ontario Fire College. These coursecredits cover the practical or applied learning outcomes required by training officers including;

o OFM Trainer/Facilitator Courseo CO 101 Legislation/Standards or equivalento CO 201 Leadership and Communication Theory or equivalento CO 202 Practical Communications and Supervision or equivalento OFC Applied Program Development course and Applied Program Delivery course or

equivalents.

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



7.2 Training ProgramsIn partnership with the Ontario Association of Fire Chiefs, the Office of the Fire Marshal, Ontario hasdeveloped training standards for firefighters and Company Officers. Each of these standards has anextensive curriculum including the theoretical and practical components of the primary functions androles and responsibilities of these positions.

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

In our view, in addition to responding to the relevant standards, curriculum and health and safetyrequirements, a comprehensive annual training program should include the following core functions:

Identification of training needs in relation to services provided;

Coordination / scheduling of theoretical and practical training;

Monitoring and evaluation in relation to outcomes achieved;

Ongoing evaluation in relation to best practices and legislative requirements;

Oversight of program objectives and records management; and

Ongoing assessment of program delivery for efficiency and effectiveness.

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

7.3 Specialty Training ProgramsIn addition to basic firefighting training the department must also consider the training needs associatedwith specialized services. Specialized services (e.g. technical rescues) are the types of services thattypically require a higher level of technical training and equipment to safely mitigate the emergency.

Our review identified that the following specialized services are currently being provided:

Medical Responses (as per Tiered Response Agreement);

Auto Extrication (including scene stabilization, heavy hydraulic tools, air bags);

Ice / Water Rescue (including “Shore-Based” rescue);

Hazardous Materials Response (including “Awareness Level” response); and

Rope/High Angle Rescue (including low angle rescue only, “Awareness Level” for confinedspace).

Based on our review of historical calls for service and the Community Risk Profile we are recommendingthat consideration be given to expanding the following specialized service:

Ice/Water Rescue (to include “Water-Based Rescue”)



Expanding this service would respond to rescue situations that may require the entry of a firefighter intothe water to conduct a rescue. Expanding to “Water-Based Rescue” will require additional training andthe purchase of some additional equipment. Based on our review there is sufficient risk within thecommunity related to the presence of standing and moving water for Council to consider providing thisservice.

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

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

7.3.1 Live Fire TrainingThe purpose of live fire training provides realistic fire training simulations under safe and controlledconditions. With relatively low volumes of fire calls it is important that the department provides accessto suppression staff to simulate safe and effective fire suppression operations in an appropriate trainingfacility. Live fire training facilities can provide simulated heat, humidity, restricted vision and smokeconditions.

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

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

7.4 Succession PlanningThe department does not currently have a formal succession plan. Succession plans can provide aframework of skills and experience that are required for each position within the department. Forcandidates seeking promotion or further responsibilities the succession plan can provide a career path tothe position of their choosing.

Succession planning can also provide the CAO and Council with the knowledge that there are trained andskilled candidates available in the event vacancies occur within the department. In our view the proposedrecommendation to appoint an Acting Fire Chief supports succession planning within the department.Where possible other initiatives such as this should be considered.

7.4.1 Promotional/Recruitment ProcessThe current promotional process begins with applications being received for the posted position.Candidates are then interviewed and a decision is made by existing officer staff. The Fire Chief isconsulted as required. A promotion to District Chief would be made by the Fire Chief in consultation withthe CAO.



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

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

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

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

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

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

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

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

7.5 Facilities & WorkspaceTheoretical training (classroom) is currently being conducted at each fire station. Each fire station hassufficient space to accommodate this type of training. Small equipment training exercises are alsoconducted in the apparatus bays or outdoors as necessary.

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



7.6 Training Division Summary and RecommendationsDeveloping a comprehensive annual training program for the department has been identified by thevolunteer firefighters, District Chiefs and the Fire Chief as a major priority. Many of the challenges thecurrent training program is facing can be attributed to the absence of a single point of contact andcoordination of training activities across the department. These factors in addition to the absence ofdedicated staff resources available to develop, deliver and monitor a comprehensive annual trainingschedule are challenging the department to sustain an effective training program.

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

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

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

As a result of our review and assessment of the Training Division we recommend that:

1. The Township of Wilmot Fire Department endorse the Ontario Firefighters Standard andCompany Officer Standard as the core curriculum for firefighter training within the Townshipof Wilmot Fire Department;

2. A comprehensive annual training program be developed including specialized training basedon the service levels approved by Council for specialized emergency responses.

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

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


8.0 Fire Stations, Apparatus & EquipmentPage - 60

8.0 FIRE STATIONS, APPARATUS & EQUIPMENT

8.1 Fire StationsThe Wilmot Fire Department currently operates from three existing fire stations as follows:

Station 1 – Baden Station is approximately 40 years old. For its age, the station is in reasonableto good overall condition, but would benefit from some infrastructure improvements such asupgrading the washrooms and kitchen areas. These challenges should be considered within anoverall, detailed review of the department’s facility needs within the coming year. The existingapparatus room is functional; however it is small by current fire station design standards. Anexpansion of this area would improve access to equipment in the apparatus for training,inspection and maintenance purposes.

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

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

Station 3 – New Hamburg was built in 1969 and is the smallest of the three stations. Space islimited in the apparatus room creating challenges to access equipment for training, inspection andmaintenance purposes without having to take vehicles out of the station. The women’s washroomfacilities are not ideally located, as they are in a part of the building separated from the fire stationby locked doors. Parking at this station is also limited, which is an issue for volunteerfirefighters responding to this station. These issues should be considered within a focused reviewof the department’s facility needs.

The New Hamburg fire station is located within a recognised flood plain area. Our researchindicates that on at least one occasion water has entered the building during a flood event. Inevents such as this a large portion of the downtown area would most likely also be under water.In our view the current station location reflects the optimal location for providing emergencyresponse to the community as well as access for the volunteer firefighters assigned to this station.

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

The current fire station locations reflect good access for emergency response to the communities theyprotect and access for the volunteer firefighters assigned to the stations. The Baden and New Hamburgstations are the two oldest stations and are in need of renewal and infrastructure improvements.Opportunities such as the relocation of the ambulance from the Baden station may provide opportunitiesfor the department in the future.



In our view there are recognized challenges with existing space allocation and facility condition. It isidentified that, although no critical issues exist at the present time, infrastructure improvements should bereviewed and implemented in a timely manner, especially with regards to the two older station facilities.We recommend that the municipality conduct a detailed facility review within the short-term horizon ofthe FMP to ascertain the overall current infrastructure condition and space needs for the fire department.In our opinion this type of review would provide the municipality with a detailed framework (includingprioritization and capital budget requirements) to address the fire department’s facility needs. Taking astrategic approach to facility maintenance and improvement will assist the Township in avoiding ormanaging costly repairs or time sensitive needs which may be requires if infrastructure begins to degradeor worst case, fail.

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

Table 9: Current Stations, Apparatus & Minimum Staffing

Station Station Address ApparatusAvailable Fire

Suppression Staffing

Baden 99 Foundry St.

2 Pumpers

1 Tanker

1 Rescue

Volunteers

New Dundee 55 Front St.

1 Pumper

1 Tanker

1 Rescue

Volunteers

New Hamburg 121 Huron St.

1 Pumper

1 Quint

1 Tanker

1 Rescue

Volunteers

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

This guidance note includes a number of actions that should be taken to limit the exposure of the dieselemissions. The following is an excerpt from Guidance Note #3-1 that states:

“The Section 21 Committee strongly recommends the installation of direct capture type exhaustsystem extractors when stations are being renovated or newly constructed. Consideration shouldbe given to having direct capture type exhaust extractors installed in all existing fire stations”.

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



8.3 Apparatus and EquipmentOverall, the apparatus and equipment within the department are generally in good condition. The fleet isrelatively young, with two thirds being less than 10 years old. There are a Pumper and a Tanker that areboth over 15 years old and are due for replacement in the next few years, in accordance with theTownship’s 10-year capital replacement plan. The fleet is also well dispersed amongst the three firestations and provides efficient suppression services throughout the Township.

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

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

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

Table 10: Apparatus and Model Year

Apparatus Station Unit # Make/Model YearReservePumper Baden P2 Freightliner/Superior 1996

Pumper NewHamburg P31 Freightliner/Lafrance 1999

Pumper Baden P1 Freightliner/Rosenbauer 2006

Pumper New Dundee P21 International/Crimson 2010

Tanker NewHamburg T35 Ford/C-Max 1995

Tanker New Dundee T25 Freightliner/Dependable 2003

Tanker Baden T5 Freightliner/Dependable 2007

Rescue Baden R7 Freightliner/Dependable 2004

Rescue NewHamburg R37 Freightliner/Dependable 2005

Rescue New Dundee R27 Freightliner/Dependable 2009

Aerial NewHamburg A39 Spartan/LTI 2000

Pickup Headquarters 500 Ford F-150 2010



Each station is equipped with a Pumper, a Tanker, and a Rescue apparatus. The department’s aerialapparatus is located at the New Hamburg station. All apparatus are relatively new other than Tanker(T35) in New Hamburg and Pumper (P31) in Baden. These apparatus identified within the capitalreplacement budget and are scheduled for replacement in 2013 and 2015, respectively. The Townshipcurrently has Pumper (2) located at the Baden station that is used as a reserve apparatus when one of theprimary apparatus is out of service for repairs or maintenance.

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

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

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

The department has planned for an additional pumper in 2019 to add to depth of apparatus within thedepartment. Based on our analyses of growth we believe this is an appropriate plan and should besustained within the long-term horizon of this FMP.

In our view the department has done very well in standardizing the apparatus and equipment under theleadership of the Fire Chief and the District Chiefs. Informally the District Chiefs have sought the inputof the volunteers at each station into the type of apparatus and equipment to be purchased. In our viewcontinuing this strategy and including the input of the volunteers into the purchasing of apparatus andequipment will support the desire of developing one unified composite fire department.

8.4 Maintenance

8.4.1 Apparatus MaintenanceApparatus requiring Ministry of Transportation, Ontario (MTO) certificates have scheduled maintenancethroughout the year. This is incorporated into the schedule and work load of the Township’s public worksmechanic. Preventative maintenance occurs at the time of certification and six months after. Thedepartment strives to complete the final service by November to ensure vehicles are ready for winteroperating conditions.

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

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



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

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

Self-contained breathing apparatus (SCBA) are another example of the department’s use of life cycleplanning and budgeting for replacement. SCBA bench tests are carried out at least once every two yearsor at the time of any service if any deficiencies are noted. A number of volunteer firefighters have fieldlevel maintenance training to allow them to do minor repairs on site. The SCBA air cylinders are alsochecked regularly for compliance with hydrostatic testing and tested as required.

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

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



8.6 Fleet Replacement PlanOur review of apparatus replacement and major equipment replacement plans for municipalities withsimilar types of use and wear reflect a best practice strategy of 15 years of service as front-line apparatusand a further five years of service in a reserve capacity reflecting a 20 year overall life cycle for majorapparatus such as pumpers and tankers. Table 11 summarizes the dates associated with existingapparatus replacement.

Table 11: Fleet Replacement Plan

Apparatus Unit # Make/Model Year ReplacementYear

ReservePumper P2 Freightliner/Superior 1996

2015(remove from

service)

Pumper P31 Freightliner/Lafrance 1999 2015

Pumper P1 Freightliner/Rosenbauer 2006 2020

Pumper P21 International/Crimson 2010 2025

Tanker T35 Ford/C-Max 1995 2013

Tanker T25 Freightliner/Dependable 2003 2023

Tanker T5 Freightliner/Dependable 2007 2022

Rescue R7 Freightliner/Dependable 2004 2024



Aerial A39 Spartan/LTI 2000 2020

Pickup 500 Ford F-150 2010 2020



8.7 Fire Station, Apparatus, & Equipment Summary andRecommendations

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

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

As a result of our review of Wilmot’s fire stations, apparatus & equipment we recommend that:

1. The municipality conduct a detailed facility review in the short term horizon to ascertain theoverall current infrastructure condition and space needs for the fire department, mostspecifically the Baden and New Hamburg Fire Stations.

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


9.0 Communications & TechnologyPage - 67

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

9.1 Fire DispatchThe Township of Wilmot currently contracts emergency call taking and fire dispatching through anagreement with the Kitchener Fire Department. Kitchener is also responsible for activating the pagingsystem to alert volunteer firefighters to respond. Both departments operate on the regional 800 MHztrunked radio system. The trunked radio system provides the operational flexibility to operate throughnumerous “talk groups” or virtual channels so that the users can conduct several operations at one timewithout impact each other. This is particularly valuable in large incidents or when automatic aid isrequested and multiple departments are operating on one emergency scene.

The current agreement with the Kitchener Fire Department was renewed on January 1st, 2012 and will bein place until December 31st, 2016. The agreement details a fee procedure and the provision ofinfrastructure and operations activities by the Kitchener Fire Department. Performance criteria are alsoincluded.

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

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

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

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

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


9.0 Communications & TechnologyPage - 68

9.3 Communications and Technology Summary andRecommendations

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

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

As a result of our review and assessment of communications and technology we recommend that:

1. The department management team identifies and implements strategies to enhance thecommunication and interaction across the department.

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


10.0: Study ConsultationPage - 69

10.0 STUDY CONSULTATIONThe process of developing a Fire Master Plan for the Township of Wilmot involved various consultationactivities. Effective communication and consultation with stakeholders and the community isessential to ensure that those responsible for implementing this Fire Master Plan, and those with avested interest, understand the basis on which certain decisions are made and why particular actionsare required.

10.1 Steering CommitteeThe Steering Committee was comprised of the following members, including Township staff and Councilmembers:

Fire ChiefChief Administrative Officer (CAO)Director of Finance & TreasurerHuman Resources representatives[Fire Prevention OfficerThree District ChiefsOne Council Representative

10.2 Project MeetingsThroughout this study, the Dillon team met with the Steering Committee to keep them abreast of studyprogress. The following meetings took place:

Project Meeting #1 Project Initiation – May 28, 2012

Project Meeting #2 Preliminary Findings & Recommendations – August 14, 2012

Project Meeting#3 Present Draft Report – November 29, 2012

Project Meeting#4 Present Final Report to Council – Planned for January 14, 2013

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

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


10.0: Study ConsultationPage - 70

10.3.2 Interview with District ChiefsOne-on-one interviews were held with the three District Fire Chiefs during the station tours. Collectinginformation from staff interviews is a key component of the data collection process and is also essential togaining feedback regarding the strengths, weaknesses, opportunities and challenges with the Wilmot FireDepartment.

10.3.3 Volunteer Firefighter Roundtable SessionsStakeholder sessions were held at each of the three fire stations that comprise the Wilmot FireDepartment. Sessions were held at Baden Station and New Hamburg Station on Monday, May 28th, 2012.A session was held at New Dundee on Monday, June 4th, 2012.

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

10.3.4 Project Update for Volunteer FirefightersFollowing the August 12th, 2012 Steering Committee Meeting, the Consultant Study Team prepared awritten one-page summary of the meeting purpose, meeting objectives, key study observations presentedby Dillon and next steps in the study process. This notice was distributed by the Township to thevolunteer firefighters.


11.0: Implementation PlanPage - 71

11.0 IMPLEMENTATION PLANThe recommendations of this Fire Master Plan support the goal of creating a single unified firedepartment. Many of the recommendations require no additional financial commitment. For thoserecommendations requiring further financial support by Council the following implementation plan hasbeen developed to provide a high level overview of the potential cost impacts of the recommendations.The operating and capital costs identified reflect cost estimates based our experience.

Our recommendation subject to Council’s approval of this Fire Master Plan is to request the Fire Chief toprovide a detailed financial implementation plan utilizing the information provided below in Table 12.

Table 12: Implementation Plan

Horizon Description

Approximate Funding Required

Operating

Budget

Capital

Budget

Short-term

2013 to2015

1. Implement the position of Public Education/TrainingOfficer (21 hours per week) $40,000

2. Increase complement of Volunteer Firefighters by 15@ $6,000 base pay per firefighter. $90,000

3. Additional training hours for increased complementof 15 firefighters @ $2,500 training pay perfirefighter..

$37,500

4. New Volunteer Firefighter bunker gear for increasedcomplement of 15 firefighters @ $3,500 perfirefighter.

$45,000

5. Complete detailed Facility Review of the firestations. $25,000

6. Install flashing green light street signage at strategiclocations within the Township. $1,000

7. Purchase new Tanker with 2500 gallon capacity toreplace current Tanker (35) $260,000

8. Investigation and removal of fire hydrants in theNew Dundee settlement area. Cost would beincurred by another department.

TBD.

9. Application for Superior Tanker ShuttleAccreditation. $5,000

10. Purchase new Pumper to replace Pumper (31) $360,000


11.0: Implementation PlanPage - 72

Horizon Description

Approximate Funding Required

Operating

Budget

Capital

Budget

Mid-term

2016 to2018

11. Increase the available hours for the Fire PreventionOfficer to reflect full-time position. $30,000

12. Increase available hours of PublicEducation/Training Officer to reflect full-timeposition.

$30,000

13. Purchase new Tanker with 2500 gallon capacity toreplace current Tanker (25) $260,000

Long-term

2019 to2023

14. Expansion of the New Hamburg fire station $450,000

15. Purchase an additional Pumper to increase the depthof apparatus fleet. $400,000

Legend: Approximate funding required as a result of Fire Master Plan recommendations

Included in existing Capital Budget Plans


APPENDIX ADetailed Community Risk Assessment

Township of WilmotFire Master Plan - Appendix ADecember 2012

Detailed Community Risk AssessmentPage – A-i

Table of ContentsPage

A1.0 DETAILED COMMUNITY RISK ASSESSMENT ................................................................. 1A1.1 Introduction .................................................................................................................... 1A1.2 OFM Fire Risk Sub-Model ............................................................................................. 1A1.3 Assessing Fire Risk Scenarios ........................................................................................ 2A1.4 Property Stock ................................................................................................................ 2

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

A2.0 BUILDING HEIGHT AND AREA ........................................................................................... 9A2.1 Building Height .............................................................................................................. 9A2.2 Building Area ................................................................................................................. 9

A2.2.1 Building Height and Area Observations ........................................................... 10A2.3 Building Age and Construction ..................................................................................... 10

A2.3.1 Building/Fire Code Application ....................................................................... 10A2.3.2 Residential Buildings ....................................................................................... 11A2.3.3 Non-Residential Buildings ............................................................................... 12A2.3.4 Building Age and Construction Observations ................................................... 12

A2.4 Building Exposures ...................................................................................................... 13A2.4.1 Building Exposures Observations ..................................................................... 13

A3.0 DEMOGRAPHIC PROFILE .................................................................................................. 14A3.1 Population Distribution by Age Group .......................................................................... 14A3.2 Population Shifts .......................................................................................................... 16A3.3 Vulnerable Individuals or Occupancies ......................................................................... 16A3.4 Language Barriers to Public Education ......................................................................... 17A3.5 Income Levels .............................................................................................................. 17A3.6 Demographic Profile Observations ............................................................................... 18

A4.0 GEOGRAPHY / TOPOGRAPHY / ROAD INFRASTRUCTURE ....................................... 19A4.1 Geography/Topography/Road Infrastructure Profile Observations................................. 22A4.2 Past Fire Loss Statistics ................................................................................................ 23

A4.2.1 Fire Loss by Occupancy Classification ............................................................. 23A4.2.2 Reported Fire Cause ......................................................................................... 24A4.2.3 Reported Ignition Source ................................................................................. 25A4.2.4 Reported Civilian Injuries and Fatalities ........................................................... 25

A4.3 Past Fire Loss Profile Observations .............................................................................. 26A4.4 Fuel Load Profile .......................................................................................................... 26

A4.4.1 Fuel Load Profile Observations ........................................................................ 27


Detailed Community Risk AssessmentPage – A-ii

A5.0 COMMUNITY GROWTH & DEVELOPMENT ................................................................... 28A5.1 Historic Growth ............................................................................................................ 28A5.2 Growth Projections ....................................................................................................... 28A5.3 Growth Projections Profile Observations ...................................................................... 29

A6.0 RISK PROFILE MODEL ....................................................................................................... 31A6.1 Probability Levels ........................................................................................................ 31A6.2 Consequence Levels ..................................................................................................... 32A6.3 Risk Levels .................................................................................................................. 33A6.4 Ontario Fire Code Compliance ..................................................................................... 34A6.5 Township of Wilmot Risk Evaluation ........................................................................... 35A6.6 Township Of Wilmot Risk Model ................................................................................. 38

A6.6.1 Methodology ................................................................................................... 38A6.6.2 Existing Risk and Response (Call Locations) ................................................... 39A6.6.3 Existing Risk and Response (Township Geography) ......................................... 39

List of FiguresFigure 1: Township of Wilmot Official Plan Land Use Map ................................................................. 20

Figure 2: Township of Wilmot Official Plan Environmentally Constrained Lands ................................. 21

Figure 3: Township of Wilmot Official Plan Transportation .................................................................. 22

Figure 4: Industrial Development Lands ............................................................................................... 30

Figure 5: Existing Risk and Response Call Locations ............................................................................ 40

Figure 6: Existing Risk and Response (Geography)............................................................................... 41

List of TablesTable 1: OBC Major Occupancy Classification ........................................................................................ 3

Table 2: Property Stock Profile Township of Wilmot ............................................................................... 7

Table 3: Residential Structural Dwelling Type ....................................................................................... 11

Table 4: Age of Construction ................................................................................................................. 12

Table 5: Age Group ............................................................................................................................... 14

Table 6: Provincial % of Fire Fatalities by Age Group ........................................................................... 15

Table 7: Retirement Homes and Communities in Wilmot ....................................................................... 17

Table 8: Mother Tongue of Wilmot Residents........................................................................................ 17

Table 9: 2006 Statistics Canada Household Data.................................................................................... 18

Table 10: Provincial Fire Loss by Occupancy Classification .................................................................. 23

Table 11: Township of Wilmot Fire Loss by Property Classification ...................................................... 24

Table 12: Township of Wilmot 2006 to 2010 Reported Fire Cause ......................................................... 24

Table 13: Township of Wilmot ............................................................................................................. 25


Detailed Community Risk AssessmentPage – A-iii

Table 14: Township of Wilmot ............................................................................................................. 26

Table 15: Historic Growth in Population and Households ...................................................................... 28

Table 16: Population and Employment Growth Projections.................................................................... 29

Table 17: OFM Fire Risk Sub-model Likelihood Levels (Probability) .................................................... 32

Table 18: OFM Fire Risk Sub-model Consequence Levels .................................................................... 33

Table 19: OFM Fire Risk Sub-model Risk Levels ................................................................................. 34

Table 20: Risk Evaluation Summary ..................................................................................................... 37

Table 21: Base Risk Zone Category by Occupancy ............................................................................... 38


Detailed Community Risk AssessmentPage – A-1

A1.0 DETAILED COMMUNITY RISK ASSESSMENT

A1.1 Introduction

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

PFSG 01-01-01 “Fire Protection Review Process” further identifies the three primary components ofassessing community needs and circumstances including:

Assessing Economic Circumstances from a Fire Protection Perspective (PFSG 02-03-0)

Assessing Fire Risk (PFSG 02-02-12)

Assessing the Existing Fire Protection Services (PFSG 02-04-01)

This section provides a detailed assessment of the current and future (planned growth) fire risk within theTownship of Wilmot.

A1.2 OFM Fire Risk Sub-Model

The community fire risk analyses within this report follow the OFM framework and specifically the OFMFire Risk Sub-Model. The model identifies the importance of community risk in the followingintroductory paragraphs:

“Assessing the fire risk within a community is one of the seven components that comprise theComprehensive Fire Safety Effectiveness Model. It is the process of examining and analyzing therelevant factors that characterize the community and applying this information to identifypotential fire risk scenarios that may be encountered. The assessment includes an analysis of thelikelihood of these scenarios occurring and their subsequent consequences.”

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

Assessing fire risk should begin with a review of all available and relevant information thatdefines and characterizes your community. Eight key factors have been identified that contributeto the community’s inherent characteristics and circumstances. These factors influence eventsthat shape potential fire scenarios along with the severity of their outcomes:

Property StockBuilding Height and AreaBuilding Age and Construction



Building ExposuresDemographic ProfileGeography/Topography/Road InfrastructurePast Fire Loss StatisticsFuel Load

Using the framework provided within the OFM’s Fire Risk Sub-model the potential fire risk scenariospresent within the community can be assessed by creating a Community Fire Risk Profile. The profile canthen be applied to assess the current level of fire protection services provided, and identify where if anypotential gaps exist, or identify areas that a municipal Council may want to consider in determining itsown ‘needs and circumstances’, as defined by the Fire Protection and Prevention Act (FPPA).

A1.3 Assessing Fire Risk Scenarios

The Fire Risk Sub-Model provides communities with the flexibility to determine how their municipalityshould be defined in terms of fire risk scenarios. Specifically, the model states that:

For analyses purposes, the community being assessed can be defined as the municipality in itsentirety or as a particular segment of it that distinguishes it from other parts. For smallermunicipalities, it may be sufficient to simply define the community based on town boundaries. Forlarger municipalities, it may be appropriate to subdivide it into separate and distinct componentsto permit more detailed analysis. For example, it may be convenient to subdivide a municipalitybased on residential subdivision, downtown sections, industrial park, and a rural area. Hence, thefirst step in conducting a fire risk analyses is to identify and define the community (s) beinganalyzed”.

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

A1.4 Property Stock

The OBC categorizes buildings by their major occupancy classifications. Each classification has inherentdefinitions that distinguish it from other occupancy classifications. Utilizing the OBC as the source fordefining the occupancy classifications provides a recognized definition and baseline for developing theCommunity Risk Profile.

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



Table 1: OBC Major Occupancy Classification

Group Division Description of Major Occupancies

Group A

Assembly

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

Group A 2 Assembly occupancies not elsewhere classified in Group A

Group A 3 Assembly occupancies of the arena type

Group A 4 Assembly occupancies in which occupants are gathered in the open air

Group B

Assembly

1 Detention occupancies

Group B 2 Care and treatment occupancies

Group B 3 Care occupancies

Group C --- Residential occupancies

Group D --- Business and personal services occupancies

Group E

Assembly

--- Mercantile occupancies

Group F 1 High hazard industrial occupancies

Group F 2 Medium hazard industrial occupancies

Group F 3 Low hazard industrial occupancies

A1.4.1 Community Risk Profile – Major Occupancy Classifications

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

This strategy provides the ability to assess property stock within a community comparatively by majoroccupancy groups thus providing a consistent and recognized definition for each major occupancy type.Where necessary this strategy provides the opportunity for further analysis of a specific occupancy group.For example a ‘Group F Industrial’ that is a ‘Division 1’ is a ‘High hazard industrial occupancy’. Subjectto any site specific hazards or concerns individual occupancies within this group can be assessedindividually and then included where required within the scope of the broader community risk profile.

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

A1.4.2 Assembly Occupancies (Group A)Assembly occupancies are defined by the OBC as the “occupancy or the use of a building or part of abuilding by a gathering of persons for civic, political, travel, religious, social, educational, recreational orsimilar purposes or for the consumption of food or drink”.



Risks within these occupancies can include:

overcrowding by patronslack of patron familiarity with emergency exit locations and proceduresstaff training in emergency procedureslarge quantities of combustible furnishings and decorations

Proactive measures for reducing risks can include:

regular fire prevention inspection cyclesautomatic fire detection and monitoring systemsapproved Fire Safety Plan and staff trainingpre-planning by fire suppression staff

A1.4.3 Care and Detention Occupancies (Group B)A care or detention occupancy means the occupancy or use of a building or part thereof by persons who;

are dependent on others to release security devices to permit exit;receive special care and treatment; orreceive supervisory care.


inability to evacuate or relocate patientspresence of flammable/combustible gasesvulnerable occupantscombustible furnishings



A1.4.4 Residential Occupancies (Group C)

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

Within this occupancy classification both the Ontario Fire Code (OFC) and the Ontario Building Codeclassify residential low-rise buildings as up to and including six stories in building height. Buildings inexcess of six stories are considered as high-rise buildings. Comparatively Statistics Canada defines low-rise buildings as being less than five stories in building height and high-rise as five stories and greater.Another example of a use within this occupancy group would be mobile homes or travel trailers. Thecommon factor is overnight accommodation (sleeping) when an occupant can be at the highest risk.As the primary source for data regarding community risk factors is provided by Statistics Canada thisanalysis utilizes the Statistics Canada definitions for residential occupancies.




overnight accommodation (sleeping)combustible furnishingssecondary units (basement apartments)high densityhuman behavior (cooking, use of candles, etc.)


Smoke Alarm ProgramPublic Education Programming including Home Escape PlanningRetro-fit and compliance inspection cycles for OBC and OFC compliancePre-planning by fire suppression staff

A1.4.5 Business and Personal Services Occupancies (Group D)

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

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


high volume of occupantshigh combustible loadingspecialized equipment utilizing high risk substances such as radiationconsumers unfamiliar with emergency exits and procedures


regular fire prevention inspection cycles to sustain OFC compliancetargeted fire prevention inspections for OFC retro-fit compliancestaff training in fire prevention and evacuation procedurespublic educationpre-planning by fire suppression staff

A1.4.6 Mercantile Occupancies (Group E)

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

These occupancies range in size and potential risk from smaller neighbourhood corner stores to the large“big box” industrial style buildings that survive on the sale of large volume. Large volumes ofcombustibles are typically present in all applications.


high volume of occupants/staffhigh volume of combustible loading/high rack storage



lack of occupant familiarity with emergency exit locations and proceduressize of building



A1.4.7 High/Medium/Low Hazard Industrial Occupancies (Group F)

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

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


large dollar loss as a result of a major fireeconomic loss in the event of plant shut downs and job lossenvironmental impactspresence of ignition sources related to processing activities


regular fire prevention inspection cyclesstaff training in fire prevention and evacuationpublic educationpre-planning by fire suppression staffinstallation of early detection systems (smoke alarms, heat detectors)installation of automatic sprinkler systems

A1.4.8 Other Occupancies/Uses not listed within the OBC (Not Classified)

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

Examples of these include:

major railway linesmajor highways and transportation corridorsoutdoor tire storage facilitiesfarm / agricultural buildings



A1.4.9 Property Stock AnalysisUtilizing the property stock classifications contained within the Fire Risk Sub-model Table 2 provides asummary of the property stock within the Township of Wilmot.

Table 2: Property Stock Profile Township of Wilmot


(OBC)

Occupancy DefinitionFire Risk Sub-model

(OFM)

Number ofOccupancies

Percentage ofOccupancies

Group A – Assembly Assembly occupancies 102 1.4%

Group B - Institutional Care or Detention occupancies 9 0.1%

Group C - Residential Residential occupancies 6,762 90.2%

Group D/E - Commercial Business and Personal Services Occupancies 81 1.1%

Group F - Industrial Industrial occupancies 143 1.9%

Other occupancies Not classified within the Ontario BuildingCode (i.e. farm buildings)

400(approximate

estimate)

5.3%

Totals 7,497 100%

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

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

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

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

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



The priority of addressing the residential fire risk is supported by the historic data1 provided by the Officeof the Fire Marshal, Ontario that reports for the period from 2006 to 2010 residential fires accounted for72% of all structure fire losses and for the period from 2001 to 2010 residential fires accounted for 86%of all fire fatalities.

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

1Sources, OFM website:http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/FatalFiresSummary/stats_fatal_summary.html

http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFires/FireLossesCausesTrendsIssues/stats_causes.html



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

A2.1 Building Height

One of the unique characteristics and risks of tall / multi-storey buildings is known as the “stack effect”.This is characterized as vertical air movement occurring throughout the building, caused by air flowinginto and out of the building typically through open doors and windows. The resulting buoyancy caused bythe differences between the indoor/outdoor temperature and elevation differences causes smoke and heatto rise within the building. This can have a dramatic effect on smoke permeation throughout the commonareas and individual units within the building. This can be directly related to the high percentage of deathsthat occur in high-rise buildings as a result of smoke inhalation.

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

Ensuring all required life safety systems are in place and functioning is a priority for these occupancies.Taller buildings can experience extended rescue / suppression response times for firefighters to ascend tothe upper levels. Options such as “shelter-in-place” whereby occupants are directed by the fire departmentto stay within their units can be an effective strategy. However, ensuring internal buildingcommunications systems are in place and functioning is critical to the success of this strategy.

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

A2.2 Building Area

Building area can cause comparable challenges as those present in taller buildings. Horizontal traveldistances rather than vertical can mean extended response times by firefighters attempting rescue or firesuppression activities.

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

The Town has a small number of large industrial/commercial/mixed-use buildings. For example, theMaple Leaf Foods facility located at 70 Heritage Drive, is a very large building in terms of squarefootage, however, the contents of the building are considered to be low hazard in terms of a combustibleload. Other examples of buildings with large areas and potential fire loss risk include:

Erb Transport, large combustible building;

Ontario Drive and Gear, large building;

10,000 Villages Warehouse Facility, large building; and

Eurocan, manufacturing, packaging and shipping, large building (220,000 square feet)



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

A2.2.1 Building Height and Area Observations

The analysis of the buildings within the Township in regards to height and area represent a minimal risk.This includes all occupancy classifications. There are also a limited number of large area (by squarefootage) buildings with the exception of those located along the Highway 7/8 corridors. The multi-useoccupancies present in the downtown core of New Hamburg in addition to their large coverage arearepresent a potentially significant fire loss risk.

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

A2.3 Building Age and ConstructionAs a community the Township of Wilmot began to develop during the late 1800’s. Many of the olderbuildings within the central areas of New Hamburg and Baden have historic ties to this era. As thecommunity has grown the large majority of new construction has occurred outside of the downtown core.This includes both commercial and residential growth. Residential development has been mainly in theform of low density housing.

A2.3.1 Building/Fire Code ApplicationThe Ontario Building Code (OBC) was adopted in 1975. The Ontario Fire Code (OFC) was similarlyadopted in 1981. Together these two documents have provided the foundation for eliminating many of theinconsistencies in building construction and maintenance that were present before their adoption.

The OBC and the OFC were developed to ensure uniform building construction and maintenancestandards are applied for all new building construction. The codes also provide for specific fire safetymeasures depending on the use of the building. Examples of the fire safety issues that are addressedinclude:

occupancyexits/means of egress including signs and lightingfire alarm and detection equipmentfire department accessinspection, testing, and maintenance

In 1983 the OFC was further expanded to include retrofit requirements for many of the buildingconstructed prior to adoption of the code. Retrofit requirements were established to ensure a minimumacceptable level of life safety is present. A number of occupancy types are included within the retrofitrequirements including assembly, boarding, lodging and rooming houses, health care facilities, multi-unitresidential, two-unit residential, and hotels.



A2.3.2 Residential BuildingsThe priority of addressing the residential fire risk is supported by the historic data provided by the Officeof the Fire Marshal, Ontario that reports2 for the period from 2006 to 2010 residential fires accounted for72% of all structure fire losses and for the period from 2001 to 2010 residential fires accounted for 86%of all fire fatalities.

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

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

Table 3: Residential Structural Dwelling Type

Structural Dwelling TypeTownship of

Wilmot3 % ofUnits

Ontario4 % ofUnits

Single-Detached House 5,525 79.3 2,718,880 55.6Semi-Detached House 640 9.2 279,470 5.7Row House 165 2.4 415,230 8.5Apartment-Duplex 85 1.2 160,460 3.3Apartment-more than 5 Stories 0 0 789,975 16.2Apartment-less than 5 Stories 525 7.5 498,160 10.2Other single-attached House 5 0.1 9,535 0.2Movable Dwelling 15 0.2 15,795 0.3Total 6,965 100 4,887,510 100

In comparison to the provincial data the Township of Wilmot percentage of single-detached housing of79.3% represents a significantly larger component of the residential dwelling types than that of theprovince at 55.6%. Semi-detached houses are the second highest percentage of residential dwellings at9.2% which is relatively higher than the provincial data of 5.7%.

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

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

2 Source, OFM website:http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFatalities/FatalFiresSummary/stats_fatal_summary.html

http://www.mcscs.jus.gov.on.ca/english/FireMarshal/MediaRelationsandResources/FireStatistics/OntarioFires/FireLossesCausesTrendsIssues/stats_causes.html3 Source: Statistics Canada - 2011 Census Data4 Source: Statistics Canada - 2011 Census Data



Table 4: Age of Construction

Period of Construction Township ofWilmot % of

UnitsOntario % of

Units

Prior to 1946 1,310 21.5 677,875 14.9

1946 to 1960 530 8.7 690,155 15.2

1961 to 1970 740 12.1 640,660 14.0

1971 to 1980 710 11.6 776,745 17.0

1981 to 1985 210 3.4 338,575 7.4

1986 to 1990 525 8.6 410,160 9.0

1991 to 1995 475 7.8 291,480 6.4

1996 to 2000 595 9.8 312,215 6.9

2001 to 2006 1,000 16.4 417,165 9.2

Total 6,095 100 4,554,255 100

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

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

A2.3.3 Non-Residential BuildingsDuring the late 19th century and early 20th century’s balloon frame construction was a common framingtechnique used in both residential and small commercial construction. This technique permitted the spreadof fire and smoke to move rapidly from the lower floors to upper floors and the roof level. Understandingthe age of construction of dwellings can assist in determining if balloon framing may have been utilised.

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

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

A2.3.4 Building Age and Construction ObservationsAs a community the current building stock of the Township is representative of a small urban settlementarea that has grown over the past century to the current mixed use urban/rural community.



Residential single-detached housing units represent 79.3% of the 6,965 residential dwelling structures.48.76% of the residential building stock was built prior to adoption of the Ontario Fire Code in 1981.

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

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

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

A2.4.1 Building Exposures ObservationsThe risk of exposures as a result of a fire can occur in incidents involving buildings that are in compliancewith current OBC and OFC requirements as well as those that may have been constructed prior to thesepublic safety initiatives.

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

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



A3.0 DEMOGRAPHIC PROFILEIn terms of demographic profile with regard to developing a community risk profile it is important tounderstand a number of key factors related to residents of the community. Assessing these factors inrelation to provincial statistics is an effective tool in understanding where there may be vulnerable groupsin terms of fire or life risk, or barriers such as language that could affect communication of publiceducation programs. The key factors within the demographic profile include:

Population Distribution by Age Group

Population Shifts

Vulnerable Individuals or Occupancies

Language Barriers to Public Education

Income level

A3.1 Population Distribution by Age Group

Within Canada our aging population has been recognized as one of the most significant demographictrends. Based on current data it is predicted that by the year 2026, one in every five Canadians will havereached the age 65. Seniors, those 65 and above represent one of the highest fire risk target groups inOntario.

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

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

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

Table 5: Age Group5

Age Characteristics of the PopulationWilmot Ontario

Total % Total Total % Total

Total population 19,200 - 12,851,820 -

0 to 4 years 1,170 6.1% 704,260 5.5%

5 to 9 years 1,255 6.5% 712,755 5.5%

5 Source: Statistics Canada - 2011 Census Data



Age Characteristics of the PopulationWilmot Ontario

Total % Total Total % Total

10 to 14 years 1,270 6.6% 763,755 5.9%

15 to 19 years 1,335 6.9% 863,635 6.7%

20 to 24 years 1,015 5.3% 852,910 6.6%

25 to 44 years 4,810 25.0% 3,383,890 26.3%

45 to 54 years 2,835 14.8% 2,062,020 16.0%

55 to 64 years 2,490 13.0% 1,630,275 12.7%

65 to 74 years 1,685 8.8% 1,004,265 7.8%

75 to 84 years 1,015 5.3% 627,660 4.9%

85 years and over 345 1.8% 246,400 1.9%

Median age of the population 40.4 - 40.0 -

% of the population aged 14 and under 3,390 19.2% 2,180,770 17.0%

% of the population aged 65 and over 2,230 15.8% 1,878,325 14.6%

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

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

Table 6: Provincial % of Fire Fatalities by Age Group

Age Characteristics of thePopulation

% ofAge Group

0 to 10 years 8%

10 to 19 years 6%

20 to 29 years 6%

30 to 39 years 10%



Age Characteristics of thePopulation

% ofAge Group

40 to 49 years 19%

50 to 59 years 14%

60 to 69 years 12%

70 to 79 years 13%

80+ years 12%

As indicated by the Provincial data, seniors tend to be more at risk. In comparison, the seniors’ populationof the Township of Wilmot as a percentage of the overall population is similar to that of the provincialdata.

A3.2 Population Shifts

The population within a community can shift at various times during the day or week and throughout theyear. This can be as a result of residents that are required to leave the community to seek employment asopposed to those having employment opportunities within the community. Other examples can includetourist and vacation destinations within a community. Large population shifts can occur during summermonths as a direct result of the seasonal availability of these activities or tourism draws within acommunity.

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

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

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

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

Occupancies that should be considered when assessing this demographic include hospitals, seniors’apartments, group homes, rooming houses, residential care facilities, daycare centres and long-term carefacilities. Table 7 lists the retirement homes and communities in Wilmot.



Table 7: Retirement Homes and Communities in Wilmot6

Community AddressMaple Heights Seniors Residence 1108 Queen Street South, New DundeeNith Terrace Seniors’ Apartments 156 Waterloo Street, New HamburgMorningside Village 10 Homestead Place, New HamburgStonecroft Homes 156 Stonecroft Way, New Hamburg

A3.4 Language Barriers to Public EducationCultural diversity and ethnic background can be factor that fire departments must consider in developingand delivering programs related to fire prevention and public education. Communication barriers in termsof language and the ability to read written material can have an impact of the success of these programs.Table 8 provides a breakdown of the mother tongue of residents within the Town based on the 2006Statistics Canada census information.

Table 8: Mother Tongue of Wilmot Residents

Language Wilmot OntarioTotal % Total Total % Total

Total population 16,975 - 12,028,895 -English 14,780 87% 8,230,705 69%French 135 1% 488,815 4%English and French 20 0% 32,685 0%Other 2,035 12% 3,276,685 27%

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

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

6 Source: Canpages.com



Table 9: 2006 Statistics Canada Household Data

Census Characteristic Wilmot OntarioPopulation Density 64.8 13.4

Median Income (all censusfamilies) $83,540 $60,455

Average Value of OwnedDwelling $313,715 $297,479

Total # of Dwellings Owned 5,225 4,547,785

% Owned Dwellings 86% 71%

% Rented Dwellings 14% 28%

A3.6 Demographic Profile Observations

The demographic analysis of Wilmot indicates that by age category the Township is very representativeof the provincial statistics. Seniors as a component of the population are also reflective of the provincialstatistics and as such should be considered as a vulnerable component of the population. There are aminimum number of buildings identified where the most vulnerable demographic of the communityreside. These buildings should be considered as high risk with regard to developing a pro-active fireprevention and protection program. Optimizing the first two lines of defence should be considered apriority for these facilities as part of the Fire Master Plan.

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

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



A4.0 GEOGRAPHY / TOPOGRAPHY / ROADINFRASTRUCTURE

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

The Township has identified Environmentally Constrained Areas. These are lands which consist ofhazard lands and lands with higher order environmental significance (e.g. ESPAs). Hazard lands arecharacterized by physical and environmental constraints such as steep slopes, organic soils, erosionsusceptibility, floodplains, other geophysical limitations and their associated buffers and setbacks. Thispolicy is intended to prevent the loss of life and minimize property damage and social disruption throughthe restriction of land use activities on lands susceptible to erosion or flooding, while permitting limiteddevelopment on lands where it is determined to be appropriate and safe. Lands identified asEnvironmentally Constrained Lands are intended primarily for the preservation and conservation of theland and environment. The central part of New Hamburg lies on land that is prone to flooding, and isregulated by the Grand River Conservation Authority (GRCA). Residents in these areas are providedwith information and warnings related to flood conditions. This is achieved through cooperation betweenthe Township of Wilmot, Region of Waterloo, Waterloo Regional Police Service and the GRCA.

The urban and settlement areas and the environmentally constrained lands are shown in the Township’sOfficial Plan maps 2 and 3 included below as Figure 1 and Figure 2, respectively.

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

7 Population in 2011: 19,233, Statistics Canada, 2011 Census


LAND USE ZONING

FIGURE # 1

0 1 2 30.5 km ²SCALE 1:120,000



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

PROJECT: 12-6148

STATUS: DRAFT

DATE: 07/24/12

New Dundee

St. Agatha

PetersburgNew Hamburg

Baden

Zoning

Municipal Boundary

Core Area

Highway Commercial

Dry Industrial Commercial

Light Industrial

Industrial

Residential

Open Space

Major Recreation

Future Land Use

Waterbody

See Inset Map # 1

See Inset Map # 2

See Inset Map # 3

Inset Map # 1Inset Map # 2

Inset Map # 3

20SLC

Text Box

FINAL



Figure 2: Township of Wilmot Official Plan Environmentally Constrained Lands

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



Figure 3: Township of Wilmot Official Plan Transportation

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

There are two Primary Township Corridors proposed as identified in Figure 3.3. The Township requiresthat all development applications be in accordance with the Regional Municipality of Waterloo’sEmergency Access Guidelines.

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

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

The following potential constraints within New Hamburg have been identified:

There is only one rail crossing in the community. A problem there would result in greatlyincreased response time to areas north of the rail line from Station 3 in New Hamburg.



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

Several other bridges on rural roads have load restrictions.

A4.2 Past Fire Loss StatisticsIdentifying and understanding trends through the analysis of historical data provides valuable insight intocommunity’s specific trends. Assessing the key factors of life safety risk and fire risk in relation toprovincial statistics provides a foundation for evaluating where specific programs or services may benecessary.

A4.2.1 Fire Loss by Occupancy ClassificationFor the period from 2006 to 2010 there were 67,028 fires within Ontario with a loss reported to the OFM.During this period 62.2% or 41,700 of these involved a structure and 37.8% or 25,328 of these firesinvolved a vehicle.

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

Table 10: Provincial Fire Loss by Occupancy Classification

Period 2006 to 2010


(OBC)


(OFM)

Ontario Fire Loss byOccupancy Classification

Group A – Assembly Assembly occupancies 5%

Group B - Institutional Care or Detention occupancies 1%

Group C - Residential Residential occupancies 72%

Group D - Business Business and Personal Services Occupancies 3%

Group E - Mercantile Mercantile occupancies 4%

Group F - Industrial Industrial occupancies 8%


7%

Reported fires Reported structure fires 41,700

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

In comparison to the provincial analysis the Township of Wilmot property loss as a result of fires ispresented in Table 11 below (OFM data for Wilmot). For the same period the analysis indicates that63.4% of the fires reporting a loss occurred in Group C - residential occupancies. The Township didexperience a much higher percentage of fires with a loss in the Group F Industrial occupancyclassification.



Table 11: Township of Wilmot Fire Loss by Property Classification

Period 2006 to 2010


(OBC)

Occupancy Definition

Fire Risk Sub-model

(OFM)

Township of Wilmot

Fire Loss by

Occupancy Classification

Group A – Assembly Assembly occupancies 4.9%

Group B – Institutional Care or Detention occupancies N/A

Group C – Residential Residential occupancies 63.4%

Group D - Business Business and Personal Services Occupancies 2.4%

Group E - Mercantile Mercantile occupancies 2.4%

Group F - Industrial Industrial occupancies 19.5%


7.4%

Reported fires excluding buildings under National FarmBuilding code (6 fires)

41

A4.2.2 Reported Fire CauseAssessing the possible cause of the fires reported is an important factor in identifying any potential trends,or areas that may be considered for introducing additional public education of fire prevention initiativesas part of the community fire protection plan.

Table 12 provides a summary of the reported possible cause of the 47 fires reported during the period2006 to 2010 for the Township of Wilmot. (OFM data for Wilmot)

Table 12: Township of Wilmot 2006 to 2010 Reported Fire Cause

Nature Fire Cause Number of Fires % of Cause

Intentional Arson 3 6.4%

Intentional Vandalism 0 0%

Unintentional Children Playing 0 0%

Unintentional Design/Construction/Maintenance deficiency 9 19.2%

Unintentional Mechanical /Electrical failure 7 14.9%

Unintentional Misuse of ignition source 7 14.9%

Unintentional Other unintentional 5 10.6%

Unintentional Undetermined 0 0%

Other Other 1 2.1%

Undetermined Undetermined 15 31.9%

Total number of fires and percentage 47 100%



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

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

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

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

A4.2.3 Reported Ignition SourceTable 13 similarly provides the reported ignition source for the 47 fires that occurred during the period2006 to 2010. (Source: OFM fire loss data for the Township of Wilmot).

Table 13: Township of Wilmot2006 to 2010 Ignition Source Class

Reported Ignition Source Number of Fires % of Cause

Appliances 4 8.5%

Cooking equipment 4 8.5%

Electrical distribution 2 4.3%

Heating equipment chimney etc. 6 12.7%

Lighting equipment 1 2.1%

Open flame tools/smokers articles 2 4.3%

Other electrical/mechanical 1 2.1%

Processing equipment 2 4.3%

Miscellaneous 9 19.2%

Exposure 1 2.1%

Undetermined 15 31.9%

Total number of fires and percentage 47 100%

(Source: OFM historic fire loss data for Wilmot)

Undetermined ignition sources represent the largest percentage at 31.9%. Miscellaneous represented thesecond largest percentage at 19.2%. Out of the main categories of determined ignition sources, heatingequipment, including chimneys, woodstoves, and fireplaces were the largest percentage at 12.7%.

A4.2.4 Reported Civilian Injuries and FatalitiesTable 14 indicates the number of fire related civilian injuries and fatalities that occurred within theTownship of Wilmot during the period 2006 to 2010 (OFM Data for Wilmot).



Table 14: Township of Wilmot2006 to 2010 Reported Civilian Injuries and Fire Deaths


(OBC)

Occupancy Definition

Fire Risk Sub-model

(OFM)

Injuries Fatalities

Group A – Assembly Assembly occupancies 0 0

Group B - Institutional Care or Detention occupancies 0 0

Group C - Residential Residential occupancies 1 2

Group D - Business Business and Personal Services Occupancies 0 0

Group E - Mercantile Mercantile occupancies 0 0

Group F - Industrial Industrial occupancies 0 0


0 0

During this period there were two reported fatalities as a result of a fire in a Group C - residentialoccupancy that occurred in 2009. The fire was a result of Design/Construction/Maintenance deficiencies.There was one reported injury during this period. The cause of this injury is undetermined.

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

Undetermined causes representing 31.9% and Design/Construction/Maintenance deficiencies representing19.2% were the leading causes for fires during this period. The cumulative percentage of fire causes thatcould not be determined represented 44.6% of the 47 fires reported during this period.

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

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

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

A4.4 Fuel Load ProfileFuel load typically refers to the amount and nature of combustible content and materials within abuilding. This can include combustible contents, interior finishes as well as structural materials.Combustible content tends to create the greatest potential fire loss risk. This can include industrialmaterials, commercial materials or typical office furnishings. Higher fuel loads results in increased fireloss risk due to increased opportunity for ignition and increased fire severity.



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

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

Our analysis of fuel load within the Township of Wilmot indicates that there are a small number ofbuildings or occupancies where significant fuel loads are present that would be cause for any specificidentification. The connected multi-occupancy structures within the downtown core present the highestamount of fuel load concentration. Regular fire prevention inspection cycles and strategies to enforcecontinued compliance with the OFC are considered as best practices to achieving the legislativeresponsibilities of the municipality and providing an effective fire protection program to address fuel loadrisks.

A4.4.1 Fuel Load Profile Observations

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



A5.0 COMMUNITY GROWTH & DEVELOPMENT

A5.1 Historic Growth

The following table indicates the historic populations within the Township of Wilmot, as provided byStatistics Canada, Census Profiles. Historic household population statistics are also included, whereavailable.

Table 15: Historic Growth in Population and Households

Year WilmotPopulation

% Change inPopulation

WilmotPopulation by

Household

% Change inHouseholds

1976 10,557 - N/A N/A

1981 10,925 3.5% N/A N/A

1986 11,145 2.0% N/A N/A

1991 13,107 17.6% 4,330 N/A

1996 13,830 5.5% 4,900 13.2%

2001 14,866 7.5% 5,200 6.1%

2006 17,097 15.0% 6,105 17.4%

2011 19,200 12.4% N/A N/A

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

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



Table 16: Population and Employment Growth Projections

Year 2006 2011 2016 2021 2026 2029

Population 17,097 19,200 22,300 N/A N/A 28,500

Household 6,296 7,158 9,000 N/A N/A 11,500

Employment 6,730 N/A N/A N/A N/A 9,700

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

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

A5.3 Growth Projections Profile ObservationsThe population of Township of Wilmot is anticipated to grow at a rate of 2.4% over the coming 20 yearperiod. This represents a 22% population increase over the next 10 years. This population increase isexpected to be accommodated in the urban settlement areas namely New Hamburg and Baden.Approximately 40% of growth is anticipated to occur as intensification with the remaining 60% of growthoccurring as Greenfield type subdivisions. The main areas anticipated to support the Greenfielddevelopments are the Activa lands in Baden (north of the Township Offices) and the Pfenning lands inNew Hamburg. The Township’s employments lands are awaiting access to sewage treatment capacityand as such are not anticipated to experience growth prior to 2018. Rural settlement growth is unlikelyuntil at least 2029. Therefore the future geographic locations of population are not expected to varysignificantly within the 10 year study horizon.



Figure 4: Industrial Development Lands

(Source: Township of Wilmot Development Service Department)



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

The OFM model develops an overall risk assessment “by assigning probability and consequence levels topotential adverse events or scenarios due to fire and combining the two to arrive at an overall risk level”.The OFM Fire Risk Sub-model provides a matrix as one option in arriving at the level of risk for a rangeof scenarios.

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

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

The methodology within this report includes a further process of assigning ‘weighting factor’ to each ofthe eight risk factor categories identified by the OFM Fire Risk Sub-model. Utilizing a range from 1(lowest) to 3 (highest) each of the factors is assigned a weight factor, to calculated a weighted average.The weight factor assigns more or less priority to each of the given factors. For example, the demographicprofile that identifies the number of vulnerable residents has been assigned the highest factor weight of 3.This process results in the most relevant categories having more impact on the risk priority levelcalculated.

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

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

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

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

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



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

Description Level Specifics

Rare 1 - may occur in exceptional circumstances- no incidents in the past 15 years

Unlikely 2 - could occur at some time, especially if circumstances change- 5 to 15 years since last incident

Possible 3 - might occur under current circumstances- 1 incident in the past 5 years

Likely 4 - will probably occur at some time under current circumstances- multiple or reoccurring incidents in the past 5 years

Almost Certain 5 - expected to occur in most circumstances unless circumstances change- multiple or reoccurring incidents in the past year

A6.2 Consequence LevelsThe consequences as a result of a fire relate to the potential losses or negative outcomes associated shouldan incident occur. The Fire Risk Sub-model identifies four components that should be evaluated in termsof assessing consequence. These include:

Life Safety: Injuries or loss of life due to occupant and firefighter exposure to lifethreatening fire or other situations.

Property Loss: Monetary losses relating to private and public buildings, propertycontent, irreplaceable assets, significant historic/symbolic landmarks and criticalinfrastructure due to fire.

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

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

The OFM Fire Risk Sub-model evaluates the consequences of an event based on five levels of severity.Table 18 identifies the OFM Fire Risk Sub-model categories.



Table 18: OFM Fire Risk Sub-model Consequence Levels

Description Level Specifics

Insignificant 1

- no life safety issue- limited valued or no property loss- no impact to local economy and/or- no effect on general living conditions

Minor 2

- potential risk to life safety of occupants- minor property loss- minimal disruption to business activity and/or- minimal impact on general living conditions

Moderate 3

- threat to life safety of occupants- moderate property loss- poses threat to small local businesses and/or- could pose threat to quality of the environment

Major 4

- potential for a large loss of life- would result in significant property damage- significant threat to businesses, local economy and tourism and/or- impact to the environment would result in a short term, partial evacuation of local residents and businesses

Catastrophic 5

- significant loss of life- multiple property damage to significant portion of the municipality- long term disruption of businesses, local employment, and tourism and/or- environmental damage that would result in long-term evacuation of local residents and businesses

A6.3 Risk LevelsOnce probability and consequence are determined for each major occupancy classification the level ofrisk is calculated by multiplying “probability x consequence = risk level (priority)”. Table 19 identifiesthe four levels of risk identified within the OFM Fire Risk Sub-model including the lower and upperrange of each risk classification and the relative definition of each.



Table 19: OFM Fire Risk Sub-model Risk Levels

Risk LevelPriority

Level

Lower – Upper

RangeDefinition

Low Risk L1 0 to 6.3 - manage by routine programs and procedures, maintain risk monitoring

Moderate Risk L2 6.4 to 12.5- requires specific allocation of management responsibility including monitoring and response procedures

High Risk L3 12.6 to 18.7 - community threat, senior management attention needed

Extreme Risk L4 18.8 to 25.0 - serious threat, detailed research and management planning required at senior levels

A6.4 Ontario Fire Code ComplianceA major determinate in assessing risk within a community and the major building classifications iscompliance with the Ontario Fire Code. The Ontario Fire Code which was adopted in 1981 and theOntario Building Code were developed to ensure uniform building construction and maintenancestandards are applied for all new building construction. The codes also provide for specific fire safetymeasures depending on the use of the building. Examples of the fire safety issues that are addressedinclude:

occupancyexits/means of egress including signs and lightingfire alarm and detection equipmentfire department accessinspection, testing, and maintenance

In 1983 the OFC was further expanded to include retrofit requirements for many of the buildingconstructed prior to 1981. Retrofit requirements were established to ensure a minimum acceptable level oflife safety is present. A number of occupancy types are included within the retrofit requirements includingassembly, boarding, lodging and rooming houses, health care facilities, multi-unit residential, two-unitresidential, and hotels.

Determining the status of compliance or non-compliance including the status of retrofit requirementsparticularly for major building occupancies is an important component of developing the CommunityRisk Profile. This is particularly important within the major occupancies classifications where there is adocumented history of property loss as a result of fire, and/or injuries and fatalities as a result of fire.Group A – Assembly and Group B – Institutional occupancies are the two primary occupancies typeswhere more detailed analysis of compliance and non-compliance should be considered.

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



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

Group A – Assembly Occupancies – Non-Compliant OFC

All Group A - Assembly occupancies are currently in compliance with the OFC.

Group B – Institutional Occupancies – Non-Compliant OFC

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

Group C – Residential Occupancies – Vulnerable Demographics

There are a number of properties where vulnerable occupants reside either in residential or institutionaloccupancies (Maple Heights Seniors Facility, Nith Terrace Seniors, Hincks St. Apartments, ShootersComplex, Carmel Monastery, Campgrounds and Vesper Springs). Although these buildings are currentlycompliant with the OFC the profile recognizes that this demographic of the population is by experience athigher risk in the event of a fire. Utilizing the “first line of defence” including pro-active fire preventionand public education programming in addition to a regular fire inspection program to sustain compliancewith the OFC is an effective strategy in managing this risk.

Group D – Commercial Occupancies – Fuel Load High RiskInformation provided by the Township indicates that all Group D - Commercial Occupancies arecurrently in compliance with the OFC.

Group E – Mercantile Occupancies – Non-Compliant OFCInformation provided by the Township indicates that all Group E - Mercantile Occupancies are currentlyin compliance with the OFC.

Group F – Industrial Occupancies – Non-Compliant OFC

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

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



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



Table 20: Risk Evaluation Summary

Community RiskProfile Factors

Property

Stock

Building

Height

Building

Age

Building

Exposures

Demographic

Profile

Geography

Topography

Past

Fire Loss

Fuel

Load

Prob.

Level

Cons.

Level

Priority

Level

Risk

Level

Weight Factor 1 2 3 1 3 1 3 2

OBC Major OccupancyClassification

Risk Level Assessment

Group A Assembly 3 2 3 2 4 2 1 2 2.4 3 7.2 RL-2

Group B Institutional 4 3 4 3 5 3 1 3 3.2 4 12.8 RL-3

Group C Residential 4 2 3 3 5 2 3 2 3.1 3 9.3 RL-2

Group D Business 3 2 3 4 2 2 1 3 2.3 2 4.6 RL-1

Group E Mercantile 3 2 3 4 2 2 1 3 2.3 2 4.6 RL-1

Group F Industrial 3 2 2 2 2 2 2 4 2.3 2 4.6 RL-1

Mobile Homes & Trailers 2 1 1 1 2 2 1 1 1.3 2 2.6 RL-1

Probability:1 – Rare2 – Unlikely3 – Possible4 – Likely5 – Almost Certain

X

Consequence Level:1 – Insignificant2 – Minor3 – Moderate4 – Major5 - Catastrophic

=

Priority Level0 to 6.2 = Low6.3 to 12.5 = Moderate12.6 to 18.7 = High18.8 to 25.0 = Extreme

====

Risk LevelRL-1 – Low RiskRL-2 – Moderate RiskRL-3 – High RiskRL-4 – Extreme Risk



A6.6 TOWNSHIP OF WILMOT RISK MODEL

A6.6.1 MethodologyThis section provides a brief outline of the scope and methodology used in order to provideinsight into the modeling procedures adopted to assess Township risk. A Geographic InformationSystems (GIS) model was developed to assess risk based on historic call locations, riskgeography, land use, the department’s existing and predicted emergency response travel timesrelate to these risks, and the Fire Risk Sub-Model (form 100).

The basis of the GIS risk model is to develop geographical risk zones that represent areas of low,moderate, high and extreme risk categories based on land use. The Township’s existing land usezoning was used to determine the boundaries and building occupancies associated with each zone.Subsequently, all building located in areas outside of the Township’s official land use zoningwere identified using a buildings shapefile provided by the Ministry of Natural Resources. Theshapefile displays the buildings as points, thus each point/building was given a 100m buffer inorder to approximate the building along with its corresponding property. All remaining un-zonedareas were given a land use classification of open space. Next, building occupancies wereassigned to their associated land use in order to determine the base risk category (assumes that allbuildings are in compliance). The base risk zones associated with each occupancy category arelisted in Table 21. Finally, several occupancies had their risk levels up-graded or down-gradedbased on the Fire Risk Sub-Model (form 100).

Table 21: Base Risk Zone Category by Occupancy


(OBC)


(OFM)Base Risk Zone Category

Assigned

Group A – AssemblyAssembly

Assembly occupancies moderate

Group B - InstitutionalInstitutional

Care or Detention occupancies high

Group C - ResidentialResidential

Residential occupancies moderate

Group D - Business Business and Personal Services Occupancies moderate

Group E - Mercantile Mercantile occupancies moderate

Group F1 - Industrial

Industrial occupancies

low

Group F2 - Industrial moderate

Group F3 - Industrial high


low



A6.6.2 Existing Risk and Response (Call Locations)The existing risk zones and existing emergency response are presented in Figure 5. This figuredepicts historic call data from 2007 and 2011 overlaid onto the existing risk zones represented inthe model. These calls were colour coded according to travel time. Calculations were carried outto estimate the number of calls within each risk zone category and the travel time associated.From the calculations table, 100% of high risk calls were responded to in four minutes or less oftravel time. The table also indicates that 62% of the moderate risk calls were responded to in fourminutes or less of travel time. Eighty-two percent of moderate risk calls were responded to ineight minutes travel time or less and 87% of moderate risk calls were responded to in ten minutesof travel time or less. This also shows that 54% of the low risk calls were responded to in fourminutes or less of travel time, 88% in eight minutes of travel time or less and 93% in ten minutesof travel time or less. This indicates that based on where the majority of the calls occur thedepartment is able to respond in a timely manner.

A6.6.3 Existing Risk and Response (Township Geography)The GIS model was used to approximate existing geographic coverage of the existing risk zoneareas. The existing station locations were represented in this scenario, shown in Figure.5.Travel times were estimated according to road network distance from the stations, with the travelspeeds based on the actual posted speed limit of the road. These assumed travel speeds (inminutes) are represented by the road network buffers surrounding the fire stations. Thecalculations indicate the percentage of the various risk zone categories that fall within theestimated travel time buffer. In this figure, 100% of the high risk geography, 38% of the moderaterisk geography and 24% of the low risk geography is covered within four minutes of predictedtravel time. This scenario also resulted in 92% of the moderate risk zones and 90% of the low riskzones being covered within the ten minute predicted travel time.

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RISK ANALYSIS

FIGURE # 5

0 1 20.5 km ²SCALE 1:80,000



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

PROJECT: 12-6148

STATUS: DRAFT

DATE: 07/20/12

Existing Stations

Note: There are no extreme risk zones within the Township of Wilmot

Low Risk

Moderate Risk

<= 4 minutes

4 - 5 minutes

5 - 6 minutes

6 - 7 minutes

7 - 8 minutes

8 - 9 minutes

9 - 10 minutes

Extreme Risk

> 10 minutes

Travel | % of Low | % of Moderate | % of HighTime | Risk Calls| Risk Calls | Risk Calls-------+-----------|---------------|------------4 min | 54% | 62% | 100%5 min | 67% | 68% | 100%6 min | 74% | 73% | 100%7 min | 80% | 77% | 100%8 min | 88% | 82% | 100%9 min | 91% | 86% | 100%10 min | 93% | 87% | 100%


Travel Times

High Risk

Station 1Baden


Station 2New Dundee

20SLC

Text Box

FINAL

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RISK ANALYSIS

FIGURE # 6

0 1 20.5 km ²SCALE 1:80,000



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

PROJECT: 12-6148

STATUS: DRAFT

DATE: 07/20/12

| % CoveredTravel Time | Low Risk | Moderate Risk | High Risk------------|----------|---------------|----------4 min | 24% | 38% | 100%5 min | 38% | 49% | 100%6 min | 54% | 62% | 100%7 min | 69% | 73% | 100%8 min | 78% | 82% | 100%9 min | 85% | 88% | 100%10 min | 90% | 92% | 100%

Existing Stations

Note: There are no extreme risk zones within the Township of Wilmot

Low Risk

Moderate Risk

Extreme Risk


Travel Times








High Risk

Station 1Baden


Station 2New Dundee

20SLC

Text Box

FINAL


APPENDIX BFire Suppression Performance Targets

Fire Master Plan - Appendix B Fire Suppression Performance FactorsTownship of WilmotDecember 2012

Fire Suppression Performance FactorsPage B-i

Table of ContentsPage

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

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

BI.2 Total Response Time .................................................................................................. B-3

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

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

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

BI.6 National Fire Protection Association (NFPA) 1710 Standard ...................................... B-5

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

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

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

List of Figures

Figure B1: OFM Fire Progression Curve............................................................................................. B-2

Figure B2: First Response Fire Scene Responsibilities ........................................................................ B-4

Figure B3: Depth of Response Fire Scene Responsibilities.................................................................. B-7

List of Tables

Table B1: Fire Growth Rates as Defined by Society of Fire Protection Engineers ................................ B-1

Table B2: NFPA 1720 ........................................................................................................................ B-8

Table B3: Comparison to the Typical Fire Risk Scenario .................................................................... B-9


Fire Suppression Performance FactorsPage B-1

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

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

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

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

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

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

Table B1: Fire Growth Rates as Defined by Society of Fire Protection Engineers

Time to Reach 1 MW and 2 MW Fire Growth Rates in the Absence of Fire Suppression

Fire Growth Rate Time in Seconds to

Reach 1MW

Time in Seconds to

Reach 2 MW

Slow 600 seconds 848 seconds

Medium 300 seconds 424 seconds

Fast 150 seconds 212 seconds

Source: Office of the Fire Marshal, Ontario, ‘Operational Planning: An Official Guide to Matching ResourceDeployment and Risk’, January 7, 2011 (www.ofm.gov.on.ca)



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

Figure B1: OFM Fire Progression Curve

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

Understanding factors such as “growth rate” and “time’ in terms of how quickly a fire can reach a criticalstage such as “flashover” are important considerations in assessing fire suppression performance targets.For example, where areas of the community may have extended response times due to long traveldistances, in excess of 10 minutes, the potential for the fire to have spread from the room of origin, and oralready reached a “flashover” state, will be significantly higher.

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



BI.2 Total Response TimeMeasuring the total response time to an emergency call can be defined by three primary components:dispatch time, turnout time, travel time. Together these components make up the total response time ittakes for a fire and emergency service to receive a call either from someone at the scene of withknowledge of the fire, identify the location of the emergency and dispatch appropriate vehicles and staff,travel to the scene of the incident, and set up to begin fire suppression activities. The common definitionsof these four components are:

1. Dispatch Time: The time that it takes for the person responsible for “alarm answering”,and “alarm processing” to be able to receive the call, and dispatch the appropriateapparatus and staff to respond to the emergency.

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

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

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

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

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

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

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

Fire scene responsibilities are highlighted in Figure B2 below.



Figure B2: First Response Fire Scene Responsibilities

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

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

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

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

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



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

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

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

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

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

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

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

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

NFPA is responsible for 300 codes and standards that are designed to minimize the risk and effects of fireby establishing criteria for building, processing, design, service, and installation in the United States, as



well as many other countries. Its more than 200 technical code and standard development committees arecomprised of over 6,000 volunteer seats. Volunteers vote on proposals and revisions in a process that isaccredited by the American National Standards Institute (ANSI).

NFPA 1710 “Standard for the Organization and Deployment of Fire suppression Operations, Emergencymedical Operations, and Special Operations to the Public by Career Fire Departments” provides aresource for determining and evaluating the number of career firefighters required based upon recognisedindustry best practices.

NFPA 1710 is a standard that is designed for larger municipalities that as a result of many factors areoperating their fire department utilizing substantially career firefighters. Relevant references from NFPA1710 include the following:

This standard applies to the deployment of resources by a fire department to emergency situationswhen operations can be implemented to save lives and property.

The standard is a benchmark for most common responses and a platform for developing theappropriate plan for deployment of resources for fires in higher hazard occupancies or morecomplex incidents.

The NFPA references support the strategic priority of saving lives and property, as well as recognising thestandard as a “benchmark” for determining the appropriate level of resources based on the complexityand level of risk present.

The NFPA 1710 standard for the initial response of four firefighters is widely accepted as the minimuminitial response and best practice within the industry. The NFPA 1710 standard for depth of response tothe same typical fire risk scenario is fourteen firefighters, fifteen if an aerial device is to be used. TheNFPA 1710 fire scene responsibilities for depth of response including an aerial are highlighted inFigure B3.



Figure B3: Depth of Response Fire Scene Responsibilities

BI.7 National Fire Protection Association (NFPA) 1720 StandardNFPA 1720 “Standard for the Organization and Deployment of Fire suppression Operations, Emergencymedical Operations, and Special Operations to the Public by Volunteer Fire Departments” provides aresource for determining and evaluating the number of volunteer firefighters required based uponrecognised industry best practices.

The NFPA 1720 standard further supports the minimum initial response staffing to include fourfirefighters including “Initial firefighting operations shall be organized to ensure that at least four firefighters are assembled before interior fire suppression operations are initiated in a hazardous area”.This particular standard further recognises that the four firefighters may not arrive on the same vehicle,but that there must be four on the scene prior to initiating any type of interior firefighting operations.

Within this standard the NFPA identifies five different categories described as “Demand Zones” thatrelate to the type of risk that may be found within a typical community; either by population density,travel distance, or special circumstances. The standard then identifies a minimum level of firefighters thatwould be recommended for each of these categories. Table B2 presents the NFPA minimum staffinglevels by category.



Table B2: NFPA 1720

Demand Zones DemographicsMinimum # of

FirefightersResponding

Response Time(Turnout +Travel) inMinutes

Urban Area >1000 people per square mile 15 9

Suburban Area 500-1000 people per squaremile

10 10

Rural Area <500 people per square mile 6 14

Remote Area Travel Distance + or – 8 miles 4 Dependent upontravel distance

Special Risks To be determined by FireDepartment

To bedetermined by

Fire Department

Determined byAuthority Having

Jurisdiction

The NFPA 1720 standard utilizes population density as a factor in evaluating the minimum number offirefighters recommended for depth of response. As a standard primarily for use by volunteer firedepartments it recognises lower population densities are typically found in smaller communities incomparison to much higher population densities found in large urban centres.

BI.8 Comparison of Emergency Response Performance MeasuresIn addition to the minimum staffing levels for the initial response and the depth of response, identifyingoptions for performance targets (service levels) must also consider criteria for the overall response timeand in terms of evaluation, the targeted percentage of achievement.

Table B3 provides the summary of the OFM PFSG 04-08-10 and NFPA 1710 & 1720 standards forinitial response and depth of response to the typical fire risk scenario presented within this report. For thiscomparison travel time represents “The travel time interval begins when the assigned emergencyresponse apparatus begins the en-route travel to the emergency, and ends when the apparatus arrives atthe scene”. The objective represents the percentage of the total number of calls responded to by a firedepartment.



Table B3: Comparison to the Typical Fire Risk Scenario

Source InitialResponse

Travel Time Depth of Response Travel Time Objective

OFM PFSG 04-08-10 --- --- **14 firefighters --- ---

NFPA 1710 4 firefighters 4 minutes 14 firefighters 8 minutes 90%

*NFPA 1720 4 firefighters --- 10 firefighters 10 minutes 80%

*NFPA 1720, suburban area, 500-1000 people per square mile

** This includes adjustments for water supply and external agencies

BI.9 Summary of Fire Suppression Performance TargetsIn our view the framework for identifying community risk and deploying sufficient firefighting resourcesto address the community risk present is accurately presented in PFSG 04-08-10 Operational Planning:An Official Guide to Matching Resource Deployment and Risk. Within these analyses of fire suppressionperformance factors we have included consideration of the staffing deployment of PFSG 04-08-12 as wellas the relevant NFPA Standards.

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

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

For responses to fire risks with a high or extreme risk level additional firefighting staff deploymentshould be automatically dispatched. This can be achieved by deploying other apparatus, stations orthrough automatic aid and fire protection agreements with other communities.

Determining an appropriate travel time performance target for both the initial response and depth ofresponse is the second major component of determining fire protection service levels. PFSG 04-08-12does not contain a specific performance target for travel time in comparison to those in NFPA 1710 and1720. Travel times for emergency response vehicles can be impacted by many factors such as trafficcongestion, traffic management systems including traffic lights and stop signs, and extended travel timesdue to converge of large geographic areas.

In our view identifying a travel time target should include consideration of the overall community fireprotection plan including optimization of the first two lines of defence. Emphasis should also be placedon the importance of time with respect to the potential of fire growth and extension form the area or roomof origin. For example, the presence of residential sprinklers would have a positive effect on the controland containment of the fire and allow for consideration of extended travel times.

In summary, identifying travel time performance targets should be a decision considered by Council inresponse to the Community Fire Risk Profile, and community needs and circumstances as defined by theFPPA.

Documents

Township of Wilmot Fire Master Plan