Report to/Rapport au :

Emergency and Protective Services Committee

Comité des services de protection et d'urgence

3 November 2005 / le 3 novembre 2005

Submitted by/Soumis par : Steve Kanellakos,

Deputy City Manager/Directeur municipal adjoint,

Community and Protective Services/Services communautaires et de protection 

Contact Person/Personne ressource : Rick Larabie, Fire Chief

Ottawa Fire Services/Services des incendies

(613) 580-2424 x29411, Rick.Larabie@Ottawa.ca

Ward 4 (Kanata)

Ref N°: ACS2005-CPS-OFS-0003

SUBJECT:	riddell fire station staffing
OBJET :	DOTATION EN PERSONNEL – CASERNE DE POMPIERS RIDDELL

REPORT RECOMMENDATION

That Emergency and Protective Services Committee receive this report for information.

RECOMMANDATION DU RAPPORT

Que le Comité des services de protection et d’urgence prenne connaissance du présent rapport.

EXECUTIVE SUMMARY

Prior to amalgamation, the total complement of on-duty career firefighters available to respond from the three (3) Kanata stations was a maximum of seven (7), including one or two stationed at the Riddell Fire Station. Since amalgamation, the total number has been increased to thirteen (13) with a guaranteed staffing of two (2) at the Riddell Station. These resources were reallocated from the former Ottawa Fire Services and are further supported by an increased complement of volunteer fire fighters available in Kanata and neighbouring West Carleton.

Historically, the Riddell area has not experienced a large number of fire calls – receiving only 97 calls in 2004 of which only 5 were fire calls.

Despite the increase in staffing in Kanata and the low call volumes in the Riddell area, Council directed staff, at its meeting of July 24, 2002, to maintain the on-duty career firefighter staffing level at Riddell Fire Station at two (2) with the understanding that the volunteer firefighters would be enhanced and utilized in the service delivery. (ACS2002-EPS-FIR-0004).

Consequently, two (2) career firefighters staff Riddell fire station on a 24/7 basis and until recently utilized a tanker truck to respond to calls. However, in June 2005, the Firefighters' Association took the position that the tanker truck that was being utilized actually had the capability of a pumper truck as defined by the Ontario Fire Marshal and as such should be staffed with four (4) career firefighters per the collective agreement provision [1].

The matter was heard at an Arbitration Hearing in June 2005. At that time it was ruled that the vehicle in question had the capability of a pumper truck and while there is no legal requirement to utilize this vehicle, if it were to be used by the career firefighters, it would have to be staffed with four (4) firefighters. The additional staffing cost to the City associated with this decision would be approximately $1.1 million annually.

In an effort to manage City costs and provide appropriate level of service to the area based on the current demand for service and risk, Ottawa Fire Services determined that the staffing levels should be maintained at two (2) staff by utilizing a different vehicle which complies with the collective agreement.

RÉSUMÉ

Avant la fusion, le nombre total de pompiers professionnels en service pouvant intervenir à partir des trois (3) casernes de Kanata était de sept (7) maximum, dont un (1) ou deux (2) pompiers stationnés à la caserne Riddell. Depuis la fusion, ce nombre est passé à treize (13), dont la présence garantie de deux (2) pompiers professionnels à la caserne Riddell. Ces ressources proviennent des anciens services des incendies d’Ottawa et sont appuyées dans leurs fonctions par un effectif accru de pompiers volontaires dans les quartiers voisins de Kanata et de West Carleton.

Traditionnellement, la région de Riddell ne reçoit pas beaucoup d’alertes d’incendie : il y a eu seulement 97 appels en 2004, dont à peine 5 étaient des alertes d’incendie.

Malgré une dotation accrue à Kanata et le faible volume d’appels dans la région de Riddell, le Conseil a demandé au personnel, lors de sa réunion du 24 juillet 2002, de maintenir deux (2) pompiers professionnels en service à la caserne Riddell, en tenant compte du fait qu’il y aurait un nombre accru de pompiers volontaires et que ceux-ci participeraient à la prestation des services. (ACS2002-EPS-FIR-0004)

Par conséquent, deux (2) pompiers professionnels sont en service à la caserne Riddell 24 heures sur 24, 7 jours sur 7, et, jusqu’à tout récemment, ils utilisaient un camion-citerne pour répondre aux appels.

En juin 2005, l’Association des pompiers d’Ottawa a toutefois établi que le camion-citerne utilisé avait la capacité d’un camion auto-pompe, tel que défini par le commissaire des incendies de l’Ontario, et que, d’après la convention collective, il devait être doté de quatre (4) pompiers professionnels[2].

L’affaire a été entendue par un arbitre en juin 2005. Celui-ci a alors établi que le véhicule en question avait effectivement la capacité d’un camion auto-pompe et que, bien qu’il ne soit pas obligatoire sur le plan légal d’utiliser un tel véhicule, son utilisation requiert la présence de quatre (4) pompiers professionnels. Pour la Ville, les coûts supplémentaires en personnel résultant de cette décision représenteraient environ 1,1 million de dollars par année.

Dans un effort visant à gérer les coûts pour la Ville tout en fournissant un niveau de service approprié pour la région en fonction de la demande et des risques actuels, les Services des incendies ont décidé de maintenir deux (2) pompiers en service, mais d’utiliser un véhicule différent qui leur permettront de se conformer à la convention collective.

BACKGROUND

According to the Ontario Fire Marshal’s definition, fire vehicles can be described as follows: both a Pumper vehicle’s and an Initial Attack Fire apparatus is designed primarily for initiating fire attack on structural and vehicular fires; a Tanker truck is designed primarily for the purpose of transporting and delivering water to fire emergencies scenes to be applied by other vehicles or pumping equipment; and Aerial vehicles are designed to provide rescue capability from elevated positions and the elevating of firefighters for fire attack.

The Ottawa Fire Service was created from nine existing fire services on 01 January 2001 as part of the legislated municipal restructuring. This restructuring brought together over 1,400 career and volunteer fire fighters from diverse Fire Departments. At that time, the Ottawa Transition Board (OTB) identified savings in the estimated amount of $2.4 million to be achieved by 2003 based on an assumption that the number of stations could be reduced by two (2) with the elimination of former municipal boundaries.

In an effort to formalize a service delivery model based on risk rather than artificial former municipal boundaries and to achieve the targeted $2.4 million in savings (as directed by the OTB), staff proposed a service delivery model that would close 2 fire stations (Blair Rd and Knoxdale) and convert 1 fire station to volunteer (Riddell).

Prior to amalgamation, the total complement of on-duty career firefighters available to respond from all three (3) Kanata stations was a maximum of seven (7) – one or two of which were stationed at Riddell. That number has been increased to thirteen (13). These resources were reallocated from the former Ottawa Fire Services and are further supported by an increased complement of volunteer fire fighters available in Kanata and neighbouring West Carleton. In addition, since amalgamation a more sophisticated deployment model has been developed which allows the Fire Service to take advantage of city wide resources through the elimination of former municipal boundaries and the collapse of eight (8) former dispatch centres into a single highly automated communications centre.

Prior to amalgamation, such services were only available through a mutual aid agreement that was often slow to be implemented. As well, the new deployment model has resulted in an aerial truck being station in central Kanata. Prior to amalgamation, aerial coverage was provided by an inoperable 1979 Aerial truck stationed in Kanata and aerial services provided by the former City of Nepean.

In 2004, Riddell Fire Station responded to 97 primary calls of which only 5 were fire calls. From January to August 2005, Riddell has responded to only 34 primary calls, none of which were fire calls.

Despite improvements in Fire Services in the former City of Kanata, Council directed staff, at its meeting of July 24th, 2002, to maintain the on-duty career firefighter staffing level at Riddell Fire Station at two (2) with the understanding that the volunteer firefighters would be enhanced and utilized in the service delivery. (ACS2002-EPS-FIR-0004).

Consequently, two (2) career firefighters staff Riddell fire station on a 24/7 basis and until recently utilized a tanker truck to respond to calls. However, in June 2005, the Firefighters' Association took the position that the tanker truck that was being utilized actually had the capability of a pumper truck as defined by the Ontario Fire Marshal and as such should be staffed accordingly - with four (4 ) career firefighters per the collective agreement provision.

The matter was heard at an Arbitration Hearing in June 2005. At that time it was ruled that the vehicle in question had the capability of a pumper truck and while there is no legal requirement to utilize this vehicle, if it were to be used by the career firefighters, it would have to be staffed with four (4) firefighters. The additional staffing cost to the City as a result of this decision would be approximately $1.1 million annually.

The Collective Agreement does not require a minimum staffing level of four (4) if a different vehicle is placed in service and it does recognize that "…it is the exclusive function of the Employer to … plan, direct and control operations." Consequently, the Ottawa Fire Service determined that to provide the appropriate level of service to the area based on a low demand for service and low risk, staffing levels should be maintained at two (2) but that staff should use a different vehicle which complies with the collective agreement.

DISCUSSION

The Riddell Fire Station currently provides primary service to approximately 3,100 separate dwelling units with over 2000 under construction or projected in the Morgan's Grant and Briarbrook communities and represents less than 100 calls per year. This compares to other Urban Fire Stations that received between 400 and 2,900 of calls in 2004. (Document 1)

In all areas of the City, reported fires result in a multiple fire station response. In all fire incidents, where Riddell Fire Station is the primary responding station, the neighbouring Teron Road Station pumper staffed with four (4) career firefighters and the aerial from Teron Road staffed with three career fire fighters along with a full time pump crew from the next closest fire station will automatically respond along with the two (2) career fire fighters stationed at Riddell. Depending on the nature of the call, volunteers from any or all of the Kanata stations as well as the West Carleton stations could also be deployed. As is elsewhere in the City, a chief officer and safety officer will also attend the incident. This results in an excess of 15 firefighters responding to a fire incident in the Riddell area. Should the incident be very serious, citywide resources also become immediately available to respond. In fact, as part of the arbitrators decision, it was recognized that the current two (2) staff provision when coupled with the current standard two additional pumper response, aerial response, safety officer and chief officer response, in fact " … the total compliment of employees assigned to a fire was greater in the Riddell district than in others."

The deployment model has been designed to provide the best coverage possible based on risk, geography and population. The staff assigned to Teron Rd. (Beaverbrook) respond automatically to the Riddell station area in the event of a fire or other serious incidents; however, if staff/vehicles were to be moved from Teron Rd and sent to Riddell, it would result in moving resources from an area where they are most required to an area where they are least required. The Riddell area is not a highter risk area than the Teron Rd. area, in fact, it is not even a higher risk area than some areas serviced soley by volunteers.

In 2004, the Riddell Fire Stations responded to 97 primary calls - only 5 of which were categorized as fires. Based on the low call volume and significant resource deployment practices for the area, Ottawa Fire Service determined that two (2) career firefighters with an appropriate vehicle supported by volunteer firefighters could provide the proper level of service for the area surrounding the Riddell Station.

Likewise, this level of service has been determined to be adequate by the Insurer's Advisory Organization (IAO). Their mission is to provide risk information to the insurance and risk management industry and to others who manage insurance functions across Canada. The organization has indicated to staff, that insurance rates would not increase based on a change of vehicle utilized in the Riddell station.

To increase staffing from (2) career firefighters to four (4), will double the staffing cost – an increase of approximately $1.1 million annually. To staff a station with 4 career fire firefighters on a 24/7 basis costs the City approximately $2 million per year. The Riddell station receives far fewer calls than any of the other stations staffed with professional fire fighters. So far in 2005, Riddell has received fewer calls than twelve (12) of the sixteen (16) rural fire stations that are staffed entirely by volunteers. (Document 1)

In an effort to provide appropriate service to the Riddell area, while managing costs to the City, Ottawa Fire Services has purchased a Rapid Attack Snuffer truck which is equipped with 500 gallons of water, a 500 gallons per minute (GPM) pump and a 140 cubic feet per minute (CFM) compressor system for foam generation. It is a very adaptable multi-use vehicle and will provide support to the Riddell area of the City as well as support the delivery of fire service to the Carp Airport with its enhanced foam capability. This vehicle while very capable is not a Pumper Truck under the Ontario Fire Marshal’s definition and as such can be staffed with two (2) people under the current Collective Agreement.

CONCLUSION

The additional investment of approximately $1.1 million per year required to staff up the Riddell Fire Station to four (4) career fire fighters is not warranted given that the station responds to less than 100 calls per year. Riddell responds to significantly fewer calls than any other career station in the city and so far this year has responded to fewer calls than twelve (12) of the rural fires stations, which are staffed solely by volunteer fire fighters. Consequently, Ottawa Fire Services has provided an appropriate vehicle (Rapid Attack Snuffer) and continues to staff Riddell station with two (2) career firefighters per Council direction.

CONSULTATION

Ottawa Fire Service staff and the Insurance Advisory Organization were consulted in the development of this report.

FINANCIAL IMPLICATIONS

There are no financial implications associated with this information report.

SUPPORTING DOCUMENTATION

Document 1: Call Volumes

DISPOSITION

Community and Protective Services, Fire Service Branch will implement any direction received from Committee and Council associated with this information report.

Document 1

Call Volume
STATION #	STATION NAME	STATION ADDRESS	2004	2005	STATION STAFFING
			Jan1 - Dec 31	Jan1 - Aug 31
13	Sandy Hill	530 King Edward Avenue	2,895	1,819	Staffed
11	Preston	135 Preston Street	2,240	1,198	Staffed
23	Carling	1443 Carling Avenue	1,125	771	Staffed
56	Coventry	275 Coventry Road	1,143	762	Staffed
22	Lincoln Heights	1397 Richmond Road	1,141	700	Staffed
35	Alta Vista	2355 Alta Vista Drive	967	618	Staffed
12	Glebe	635 O’Connor Street	998	613	Staffed
51	Montreal	900 Montreal Road	1,045	582	Staffed
21	Woodroffe	1300 Woodroffe Avenue	1,157	572	Staffed
57	Beechwood	220 Beachwood Avenue	809	492	Staffed
44	Barrhaven	1075 Greenbank Road	718	486	Staffed
41	Eagleson	380 Eagleson Road	742	481	Staffed
36	Industrial	900 Industrial Avenue	809	461	Staffed
53	Charlemagne	500 Charlemagne Blvd	674	442	Staffed
24	Viewmount	230 Viewmount Drive	706	426	Staffed
33	Hunt Club	3336 McCarthy Road	648	408	Staffed
34	Hog's Back	700 Brookfield Road	619	374	Staffed
43	Bell's Corners	3845 Richmond Road	507	368	Staffed
52	Convent Glen	6213 Jeanne D’Arc	478	367	Staffed
42	Beaverbrook	1021 Teron Road	501	348	Staffed
31	Conroy	3255 Conroy Road	593	327	Staffed
54	Blackburn Hamlet	3080 Old Innes Road	414	280	Staffed
55	Blair	1700 Blair Road	429	258	Staffed
25	Knoxdale	60 Knoxdale Road	414	252	Staffed
32	Leitrim	3202 Leitrim Road	442	246	Staffed
81	Stittsville	1641 Main Street	379	243	Volunteer
94	Manotick	5669 Manotick Main Street	151	86	Volunteer
82	Richmond	6280 Perth Street	151	82	Volunteer
73	Vars	5859 Centre Street	89	76	Volunteer
83	North Gower	2352 Roger Stevens Drive	104	73	Volunteer
93	Greely	6891 Parkway Road	159	71	Volunteer
91	Metcalfe	8011 Victoria Road	175	65	Volunteer
92	Osgoode	3110 Nixon Drive	100	62	Volunteer
72	Cumberland	2445 Old Montreal Road	109	59	Volunteer
66	Dunrobin	3285 Dunrobin Road	50	47	Volunteer
71	Navan	1246 Colonial Road	85	38	Volunteer
64	Carp	475 Donald B Munro Drive	48	36	Volunteer
84	Corkery	3449 Old Almonte Road	42	35	Volunteer
45	Riddell	1040 Riddell Drive	97	34	Staffed
62	Fitzroy Harbour	6900 Harbour Street	49	31	Volunteer
63	Constance Bay	341 Bayview Drive	52	27	Volunteer
61	Kinburn	3150 Kinburn Side Road	125	23	Volunteer
TOTAL CALLS			24,179	14,739
Notes: 1) Station 37 is not included because it has not had a full year of operation yet. 2) Station order is based on 2005 Call Volumes.

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[1] Ottawa Professional Fire Fighters Association Collective Agreement November 13, 2002 Article 5.10a) Pumps shall respond with a minimum company of four (4) fire fighters, (Implemented by April 30, 2004).

[2] Convention collective de l’Association des pompiers professionnels d’Ottawa, le 13 novembre 2002, alinéa 5.10a) : « les camions auto-pompes doivent intervenir avec un effectif minimum de quatre (4) pompiers » [traduction]. Mise en œuvre le 30 avril 2004.