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Peter Corfield & Associates PCA Phone 905 988 3473
3806 Sinnicks Avenue Email pcorfield@cogeco.ca
Niagara Falls, ON L2J 2G7 Web www.petecorfield.ca
MASTER FIRE PLAN
Municipality of Bayham Fire Department
Present Operational Status & Future Direction
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates
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EXECUTIVE SUMMARY
EXECUTIVE SUMMARY
The Master Fire Plan process has involved several meetings and interviews with Bayham Council members, the Master
Fire Plan Steering Committee, former Fire Chiefs (2), present Fire Chief, Senior Staff, Station Chiefs, Station Officers, and
firefighters from both Straffordville and Port Burwell Fire Stations. We were conducted on two extensive tours of the
Municipality by former Chief Groeneveld, and visited both fire stations. We walked some of the stone peer that juts out into
Lake Erie and saw first hand the many wind power generators dotting the landscape. Our impressions are of a Municipality
that is fully supportive of their firefighters and recognize the value of their volunteer system.
This is a reasonably large, mostly rural community, with farming forming most of the foundation. The Villages of Port
Burwell, Vienna, and Straffordville offer a nice relaxed atmosphere to live and enjoy. During the period that we were
involved in this process, the Fire Chief had moved on to take up a position with a neighboring Municipality. Overall, from our
perspective, there have been three distinct segments to the review of this fire service – the first segment was with the
previous Fire Chief, the second without any Fire Chief and this last phase with a new Fire Chief and his perspective on
various matters. The summary of which is this presented us with the need to rethink some of our thoughts and
recommendations.
The reason for the “rethink” is due to the changing dynamics we encountered during this process. When the incumbent Fire
Chief is there to implement any recommendations made which will affect the firefighters and operations, there isn’t as much
potential problem in dealing with these adjustments. However, with a new person taking over the responsibilities, this could
be enough change for everyone’s sake for the short term at least. Every new Fire Chief will bring his/her own perspective
and influences to bear on a fire service and the result will be change.
We found, and were told often, that the most compelling issues were water rescue and the Specialty Team concept. There
were other matters needing address such as the Port Burwell Fire Station, Fire Underwriter’s Survey and some other minor
issues. It was interesting how each station’s personnel viewed these issues. The water rescue issue was front and center
with Port Burwell, which is understandable. After all, they are the ones affected the most. Providing a service is always
easier than ending one. There will always be the “what if?” question.
Council, at the recommendation of the previous Fire Chief, made the decision to stop providing a boat-based water rescue
service in Port Burwell. The Fire Chief at that time provided a full report based on many factors including “service demand”
and potential liability/regulations issues. There will always be the potential for something to happen. The important factor,
from our standpoint was that the Municipality confronted the matter and decided. This has not sat well with some firefighters
and others. Their position is, and has been, that this service capability is needed at almost any cost. In our opinion, this is a
wrong headed position to take. The taxpayers must know that a government cannot provide for every contingency
imaginable. There must be balance in decision making. If there is a noticeable service demand and the taxpayers are
willing to ante up to pay for it then the service can be provided. Our recommendation may be seen as incongruous with our
personal experience because I was Fire Chief with a municipality that provided water rescue service. That service was
clearly substantiated by the overwhelming number of calls for help from boaters and swimmers annually. The few times
over the past 10 years or so that Port Burwell Station has been called upon pale in comparison. This being said, Bayham is
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & AssociateA
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EXECUTIVE SUMMARY
still providing water rescue capability. At the time, our recommendation was that it be shore based only with no water entry
for the safety of the firefighters. However, times have changed with a new Fire Chief at the helm who has considerable
background in water rescue. After some lengthy discussions with him and the understanding that providing limited water
entry rescue will not entail an undue amount of training nor considerable increase in the budget, it is our position this “new”
direction will be “good” for the community and we can support this.
Our recommendation regarding “Specialty Teams” flows directly to an emergency service being able to respond and
effectively deal with an emergency for which a municipality has stated they will provide service for. The present system of
having small groups of trained firefighters for handling certain emergencies does not go far enough for the actual provision
of these services. The Fire Department could easily find itself in a bind if not enough trained personnel are available at the
emergency scene. There are other issues as well impacting upon this present service structure; we feel the specialty team
configuration should be discontinued and replaced with a department wide capability.
To arrive at our conclusions and recommendations required us to spend considerable time in Bayham, meet with several
Municipal leaders and firefighters, and review a large number of Bayham documents and industry standards. It has been a
very informative journey with a number of twists and turns. The following is a summary of our recommendations contained
in this report.
RECOMMENDATION: Port Burwell Fire Station
With acknowledgement of the ongoing work being undertaken by the committee established to seek a
replacement facility for this aging facility, it is our recommendation that the new Fire Chief be directed to bring
this matter to Council for action as soon as possible.
RECOMMENDATION: FIRE APPARATUS
That Council set out a policy for the purchase, maintenance and retirement of fire apparatus in concert with
accepted industry standards such as: NFPA 1500, 1911, 1915, Section 21 Guidance Notes, and the Fire
Underwriter’s Survey.
RECOMMENDATION: FIREFIGHTER RECRUITMENT – RETAINMENT
That Council direct staff to bring forward a comprehensive program for the recruitment and retainment of
firefighters. Presently, there does not appear to be any pressing problems. However, the changing economic
climate and demographics make the future uncertain. It is better to be prepared.
It is further recommended that the present wording directing the new recruit to report to their “fire department”
be changed to “fire station”. This underscores that it is the Bayham Fire Department with Fire Stations in
Straffordville and Port Burwell.
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EXECUTIVE SUMMARY
RECOMMENDATION: OFFICER QUALIFICATIONS
That the Fire Chief bring forward a proposal for Council’s consideration requiring perspective Fire Officers be
trained and qualified in Incident Command and undertake leadership training.
RECOMMENDATION: SPECIALTY TEAMS
It is recommended that the concept of specialty teams be discontinued. There are present difficulties with this
practice, and it could create a negative outcome at an emergency scene if no or inadequate numbers of
trained personnel are on-hand to deal with the particular emergency.
RECOMMENDATION: WATER RESCUE
The former Fire Chief presented Council with detailed information on the cost and associated issues for not
providing a boat-based water rescue capability. Council was well advised. The future may present unforeseen
issues whereby Council will have to be further advised. However, at this time, it appears to us that Council
made the right decision. As stated earlier, we do support the new Fire Chief’s position of increasing the shore
based water rescue with a limited water entry capability in keeping with the newest standards.
RECOMMENDATION: SUGGESTED OPERATING PROCEDURES
The new Fire Chief be directed to continue producing SOGs with a focus on emergency operations. They
should be arranged to reflect administrative issues as well as operational ones. The Fire Chief is advised to
include the disclaimer provided herein or a similar statement as advised by legal counsel.
RECOMMENDATION: TANKER SHUTTLE CERTIFICATION
We have seen the Municipality’s commitment to providing quality fire apparatus and support equipment. The
addition of the new Pumper/Rescue with increased water hauling capacity is an excellent case in point. There
are presently some uncertainties surrounding the Tanker Shuttle Certification process, and the potential
savings to home owners and businesses that cloud this issue. The new Fire Chief should be directed to bring
forward a report to Council updating the information previously presented.
RECOMMENDATION: COUNCIL OVERSIGHT
As the governing board, the Council has the responsibility to see that its citizens are protected, and their tax
dollars well spent. We are not suggesting it is otherwise. We are saying however there are certain “drivers” in
the fire service which when left to themselves result in higher and higher costs for service. Incumbent in this
are medical calls. Our personal experience suggests that medical calls such as “difficulty breathing,” with no
other accompanying symptoms, are rarely life threatening, and are a leading reason for escalating medical
calls. The Council should be given the facts, and if indicated, direct staff to make the appropriate changes.
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EXECUTIVE SUMMARY
RECOMMENDATION: FIRE PREVENTION SELF INSPECTION PROGRAM
It has been noted previously by the OFM that the Municipality should have a program of routine inspections.
There is a cost to this that might be preventing such a move. A new Fire Chief and different duties might be
sufficient to provide this worthwhile service. However, there is a very cost affordable way to achieve some of
the same results, as would a physical inspection by a fire inspector. Self inspection is an option the Fire
Department should investigate and institute.
*NOTE: unless it is otherwise stated, all opinions, findings, and recommendations are solely those of
Peter Corfield & Associates.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & AssociateD
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ACKNOWLEDGEMENTS
ACKNOWLEDGEMENTS
Peter Corfield and Associates would like to thank the Municipality of Bayham’s Mayor Lynn Acre, and Members of Council
for their continued support of the Bayham Fire Department, and the courtesy they showed to us. We also thank
Administrator Kyle Kruger for his assistance, patience, and understanding throughout this process. We’re sure it was not
easy for him when the Fire Chief vacancy happened mid-stream of this process. Mr. Kruger was always available to
answer questions, and provide input and opinion.
We thank the former Treasurer Suzanna Dieleman Mantel for providing us with the financial information and insights. Ms.
Leann Walsh was invaluable for providing us with several pieces of information at some busy times for her. Former Fire
Chief Paul Groeneveld was very accommodating and informative, and never tiring of our endless questions and requests
for information. We also wish him good luck with his new career path. He has been progressive during his time with
Bayham, and appears well respected by his peers and firefighters. If he does for Malahide what he has done for Bayham,
that community will be well served.
We also thank the new Fire Chief, Gordon Roesch for his inputs and suggestions. We particularly appreciate the manner
by which he presented himself and his position regarding water rescue. His expertise in this area and open mindedness
should have positive results for the Bayham Fire Service.
The citizens of Bayham should be proud and continue supporting their volunteer firefighters. These individuals do a fine job
for their community and form the basis of making Bayham an excellent place to live. The Station Chiefs and Officers have
shown themselves to be dedicated leaders of their community and Fire Department.
We have found our experiences throughout this process to be refreshingly rewarding. This community can be an example
for other communities on how to provide fire emergency services both affordably and effectively.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associate1
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TABLE OF CONTENTS
Table of Contents
EXECUTIVE SUMMARY ............................................................................................................................................... A
RECOMMENDATION: Port Burwell Fire Station ....................................................................................................... B
RECOMMENDATION: FIRE APPARATUS .............................................................................................................. B
RECOMMENDATION: FIREFIGHTER RECRUITMENT – RETAINMENT ................................................................. B
RECOMMENDATION: OFFICER QUALIFICATIONS ............................................................................................... C
RECOMMENDATION: SPECIALTY TEAMS ............................................................................................................ C
RECOMMENDATION: WATER RESCUE ................................................................................................................ C
RECOMMENDATION: SUGGESTED OPERATING PROCEDURES ....................................................................... C
RECOMMENDATION: TANKER SHUTTLE CERTIFICATION .................................................................................. C
RECOMMENDATION: COUNCIL OVERSIGHT ....................................................................................................... C
RECOMMENDATION: FIRE PREVENTION SELF INSPECTION PROGRAM .......................................................... D
ACKNOWLEDGEMENTS .............................................................................................................................................. 1
Table of Contents ............................................................................................................................................................ i
Master Fire Plan ........................................................................................................................................................... 1
The Municipality of Bayham ............................................................................................................................................ 2
Study Objectives ...................................................................................................................................................... 3
Scope and Method of Study ..................................................................................................................................... 3
Bayham’s Summary of Expected Outcomes ............................................................................................................. 4
Municipal Fire Protection System .................................................................................................................................... 1
EMERGENCY CALL EXPERIENCE IN BAYHAM .......................................................................................................... 2
Historical Trends – Total Emergency Calls ................................................................................................................ 2
Historical Trends – Medical Calls .............................................................................................................................. 3
Historical Trends – Fire Calls .................................................................................................................................... 4
Historical Trends – Motor Vehicle Collisions .............................................................................................................. 5
Historical Trends Summarized .................................................................................................................................. 5
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Comparisons with Other Municipalities ...................................................................................................................... 6
Conclusion .............................................................................................................................................................. 7
Risk Assessment Method ............................................................................................................................................... 2
Demographic Indicators ................................................................................................................................................. 3
Residential Risks ..................................................................................................................................................... 3
Commercial Industrial Risks ..................................................................................................................................... 3
Farming ................................................................................................................................................................... 4
Transportation Risks ................................................................................................................................................ 5
Wind Turbines ......................................................................................................................................................... 5
Conclusions ............................................................................................................................................................. 6
1.Impact of Fire ........................................................................................................................................................ 6
2. Fire Prevention Program Effectiveness .................................................................................................................. 6
MISSION AND OBJECTIVES ........................................................................................................................................ 2
LEGAL BASIS AND RESPONSIBILITIES ....................................................................................................................... 2
FIRE PROTECTION AGREEMENTS ....................................................................................................................... 3
Automatic Aid .......................................................................................................................................................... 4
Mutual Aid Agreements ............................................................................................................................................ 4
FIRE DEPARTMENT MANAGEMENT ..................................................................................................................... 5
Lines of Communication ........................................................................................................................................... 6
TRAINING AND QUALIFICATIONS ......................................................................................................................... 6
Recruits ................................................................................................................................................................... 6
OFFICER QUALIFICATIONS ................................................................................................................................... 7
RECRUITMENT AND RETENTION ......................................................................................................................... 8
RECRUITMENT ...................................................................................................................................................... 8
RECRUITMENT SUMMARY .................................................................................................................................. 11
RETENTION ......................................................................................................................................................... 11
WATER SUPPLY .................................................................................................................................................. 11
COMMUNICATIONS SYSTEM .............................................................................................................................. 12
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TABLE OF CONTENTS
EQUIPMENT MAINTENANCE ............................................................................................................................... 12
The following National Fire Protection Associations (NFPA) standards along with Ontario Fire Service Advisory
Committee Guidance Notes relating to fire apparatus should be referenced for ensuring proper vehicle maintenance and
replacement/retirement: ...............................................................................................................................................12
CONCLUSION ..................................................................................................................................................... 13
FINANCIAL CONSIDERATIONS ................................................................................................................................... 1
EXISTING CONDITIONS ......................................................................................................................................... 1
OPERATING BUDGET ............................................................................................................................................ 2
RESERVES ............................................................................................................................................................ 4
CAPITAL BUDGET .................................................................................................................................................. 5
ORGANIZATION STRUCTURE AND STAFFING ..................................................................................................... 5
CONCLUSIONS ...................................................................................................................................................... 5
FIRE PREVENTION AND FIRE SAFETY EDUCATION .................................................................................................. 1
SCOPE ................................................................................................................................................................... 1
FIRE PREVENTION INSPECTIONS ........................................................................................................................ 2
MEDICAL EMERGENCIES ............................................................................................................................................ 1
HAZARDOUS MATERIALS INCIDENTS ........................................................................................................................ 2
TECHNICAL RESCUE SERVICES ................................................................................................................................ 2
SPECIALTY TEAMS ................................................................................................................................................ 3
RECOMMENDATION .............................................................................................................................................. 3
WATER/ICE RESCUE ................................................................................................................................................... 3
RECOMMENDATION .............................................................................................................................................. 5
CONCLUSION ........................................................................................................................................................ 5
FIRE APPARATUS ........................................................................................................................................................ 1
MAJOR EQUIPMENT .............................................................................................................................................. 2
PORT BURWELL .................................................................................................................................................... 2
STRAFFORDVILLE ................................................................................................................................................. 2
RECOMMENDATION .............................................................................................................................................. 3
FIRE STATIONS ............................................................................................................................................................ 3
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TABLE OF CONTENTS
STRAFFORDVILLE FIRE STATION ........................................................................................................................ 3
PORT BURWELL FIRE STATION ............................................................................................................................ 4
FIRE STATIONS – CONCLUSION ........................................................................................................................... 6
OPERATIONS ............................................................................................................................................................... 7
NON-EMERGENCY OPERATIONS ......................................................................................................................... 7
EMERGENCY OPERATIONS ................................................................................................................................. 8
FIRE UNDERWRITER’S SURVEY (FUS) ............................................................................................................... 10
OVERVIEW ................................................................................................................................................................... 1
RECOMMENDATION: Port Burwell Fire Station ........................................................................................................ 1
Timeline: 6 months. .................................................................................................................................................. 2
RECOMMENDATION: FIRE APPARATUS .............................................................................................................. 2
Timeline: one year ................................................................................................................................................... 2
RECOMMENDATION: FIREFIGHTER RECRUITMENT – RETAINMENT ................................................................. 2
Timeline: 2 Years ..................................................................................................................................................... 2
RECOMMENDATION: OFFICER QUALIFICATIONS ............................................................................................... 2
Timeline: 6 months ................................................................................................................................................... 2
RECOMMENDATION: SPECIALTY TEAMS ............................................................................................................ 2
Timeline: 6 months – time for the new Fire Chief to review the present situation and present a report to Council
regarding changes and scheduling. .......................................................................................................................... 3
RECOMMENDATION: WATER RESCUE ................................................................................................................ 3
Timeline: 0 months ................................................................................................................................................... 3
RECOMMENDATION: SUGGESTED OPERATING PROCEDURES ........................................................................ 3
Timeline: 2 months ................................................................................................................................................... 3
RECOMMENDATION: TANKER SHUTTLE CERTIFICATION .................................................................................. 3
Timeline: When new information is available – whichever comes first. ........................................................................ 3
RECOMMENDATION: COUNCIL OVERSIGHT ....................................................................................................... 3
Timeline: ongoing. .................................................................................................................................................... 4
RECOMMENDATION: FIRE PREVENTION SELF INSPECTION PROGRAM ........................................................... 4
Timeline: bring back a report to Council by March 2011 ............................................................................................. 4
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TABLE OF CONTENTS
APPENDIX A .................................................................................................................................................................. i
Rural Water Sources ................................................................................................................................................. i
APPENDIX B ................................................................................................................................................................. ii
Map 1 – Automatic Aid Coverage Area ...................................................................................................................... ii
Map 2 – Port Burwell – Hydrant Locations ................................................................................................................. iii
Map 3 – Vienna – Hydrant Locations ........................................................................................................................ iv
Map 4 – Port Burwell to Straffordville ......................................................................................................................... v
Map 5 – Possible Fire Station Sites .......................................................................................................................... vi
APPENDIX C ................................................................................................................................................................. 1
Sample Station Design ............................................................................................................................................. 1
APPENDIX C ................................................................................................................................................................. 1
Bayham Fire Department Organization Chart ............................................................................................................ 1
CAPTAINS (3) ......................................................................................................................................................... 1
CAPTAINS (3) ......................................................................................................................................................... 1
Training Officer (1) ................................................................................................................................................... 1
Occupational Health & Safety Representative (1) ...................................................................................................... 1
Fire Prevention Officer (1) ........................................................................................................................................ 1
Firefighters (11) ....................................................................................................................................................... 1
Auxiliary Members (<= 5) ......................................................................................................................................... 1
Training Officer (1) ................................................................................................................................................... 1
Occupational Health & Safety Representative (1) ...................................................................................................... 1
Auxiliary Members (<=5) .......................................................................................................................................... 1
BIBLIOGRAPHY ............................................................................................................................................................. I
Various Standards and Agreements .......................................................................................................................... I
The Following Staff Reports to Council ....................................................................................................................... I
Various SOGs ......................................................................................................................................................... II
Municipal By-laws .................................................................................................................................................... II
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & AssociateV
Section 1 – Introduction
Section1 INTRODUCTION
Master Fire Plan
An Opportunity to Assess, Evaluate, Educate, Restructure, Improve
Master fire planning is fundamental in beginning to managing a community's fire protection services.
Developing and implementing a well thought out plan will provide a basis for understanding present and
future fire risks to the community, and a system for effective and efficient use of resources to control fire
losses and fire protection costs. Master fire plans should be considered a “blueprint” for local fire
protection that addresses all local needs and circumstances within the context of the costs that the
community can afford.
Bayham has undertaken this process as part of their council’s commitment to
“…ensure long-term prosperity and success for our municipality.”
To better understand the fundamentals of the Master Fire Plan process it is essential to understand the
make-up of the fire service in Ontario and the role the province plays through legislation, and the Office
of the Fire Marshal (OFM). The following information provides some background and insight.
The fire service in Ontario is regulated by the Fire Protection and Prevention Act. Under the Act, it is
mandatory for municipalities to establish a program that includes public education, with respect to fire
safety, and certain components of fire prevention. In Ontario, there are a total of 473 fire departments of
which 31 are staffed with fulltime personnel, 166 are considered “composite” (have both fulltime staff as
well as volunteer), and the largest number (276) are staffed with volunteers.
The total number of firefighters in the Province is 30,312. Volunteers make up the majority of this
number with 19,159. Fulltime firefighters number 10,933. The balance is considered “part-time”
firefighters. (All figures courtesy of the Ontario Fire Marshal’s Office).
The Office of the Fire Marshal (OFM) is a branch of the Community Safety division of the Ministry
of Community Safety and Correctional Services. The role of the OFM is to minimize the loss of life
and property from fire in Ontario by providing:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 1 – Introduction
•support to municipalities and fire departments across Ontario for meeting the needs of
their communities, including public education, fire prevention, firefighting, fire protection,
training, and fire investigation,
•leadership within the Ontario Government by advising on standards and legislation
relating to fire prevention and protection, and
•recommendations for the provision of adequate levels of fire safety for buildings and
premises within Ontario.
It is responsible for administering:
•The Fire Protection and Prevention Act. The Act promotes fire prevention and public
safety in Ontario. It enables municipalities to provide all residents of Ontario with the best
level of protection from fire possible, and in the most efficient manner.
•The Ontario Fire Code. The Ontario Fire Code is a regulation made under the Fire
Protection and Prevention Act, which contains comprehensive fire safety requirements
applicable to all buildings and premises in the province.
Municipal fire services operate independently from the OFM and are funded from local tax dollars. The
OFM website states the following responsibilities for municipalities under the FPPA are defined as:
“The act also states that municipalities are responsible for arranging other fire protection
services, as determined necessary by the municipality's needs and circumstances. To deliver
fire protection services, the municipality can appoint a Community Fire Team/Officer, or establish
a fire department. Fire departments can be made up of volunteer or paid full-time firefighters, or
a combination of both. Some municipalities jointly manage their fire department.”
The Municipality of Bayham
The Municipality of Bayham covers approximately 245 square kilometers, and has a resident
population of 6727 people. The population has increased by approximately 5.5% since the 2001
census. This compares with a 6.6% provincial increase over the same time period (Statistics Canada –
2006 census).
Bayham was formed in 1998 through the amalgamation of three former municipalities: the Village of
Straffordville, Village of Vienna and Village of Port Burwell. According to the Municipalities’ Official Plan
(OP), the population is expected to increase to approximately 7,406 in 2010. The OP further states:
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Section 1 – Introduction
“…the predominant use of land in the Municipality will be rural in nature, with an emphasis on
agricultural activities.”
The “Request for Proposal” sent out by the Municipality further states:
“Lake Erie is situated on the municipality's most southerly border including approximately 19 kms
of shoreline, with the Community of Port Burwell located on the most westerly side. On the
weekends and during the summer months, tourists flock to the area to enjoy 2 km of sandy
beaches with great swimming and boating opportunities.”
The Bayham Fire Department is considered a composite fire department, and operates from two fire
stations. One is located in the former Village of Straffordville, and the other is located in Port Burwell.
The Fire Department serves this whole area with “first response” responsibilities save for the northern
portion, which abuts the neighboring Township of South West Oxford. This area of Bayham receives its
first response fire protection via an “Automatic Aid Agreement” it has with the Township of South West
Oxford. Straffordville still responds and takes over upon its arrival at the scene.
Study Objectives
The study of Bayham’s fire service is focused on what more can or should be done to position it to best
serve the citizens over the new decade or two. The key element in any study is financing. “What is
desired” is always tempered by “What is financially doable”. Every council has the balancing act of
making sure all services they provide are funded properly and carried out according to mandates.
The three main focus areas (aka study objectives) of the fire service for this project are:
•Emergency preparedness and response (fire and emergency protection issues);
•Fire prevention and code enforcement;
•Administration and overall management (sub to this are issues such as budgeting, recruitment
and retention of volunteers, relations with council and municipal administration, succession
planning, etc.)
Scope and Method of Study
This fire review has been undertaken with a goal of determining the present operational and
administrative issues, which have made this fire service what it is and what it should and could be.
Several meetings and discussions have taken place with various town staff, council representatives
and fire officials toward the goal of obtaining a multi-faceted viewpoint and perspective from fire and
non-fire people.
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Section 1 – Introduction
Several documents (listed) were provided by the Municipality along with information from the Office of
the Fire Marshal (OFM) and other sources such as the National Fire Protection Agency (NFPA).
Contact with other fire services has also been undertaken with a goal of providing a perspective of how
the Bayham piece fits with the overall provincial fire puzzle.
We also visited and toured each fire station and met with all available fire fighters and officers. We were
shown each major piece of fire apparatus and major equipment. A total of two days were spent
travelling throughout the Municipality to gather first hand knowledge of the various areas of risk and
development clusters.
As a result of the various meetings held with Council Members, Municipal Staff, firefighters and fire
officers, we have ascertained the following are four specific issues to be addressed in this report:
•The issue of boat rescue (water based as opposed to shore based with limited water entry)
•New building for the Port Burwell area (to replace the present building)
•Specialty teams (water/ice rescue, high angle rope rescue, and vehicle extrication)
•The “Automatic Aid Agreement” with the Township of South Oxford
As we proceed through this report, we will address each of these issues accompanied with our opinion
regarding each.
Bayham’s Summary of Expected Outcomes
The Master Fire Plan Review process should include a number of issues such as the
following (but not limited to):
1.inventories
2.equipment needs
3.building/space requirements
4.staffing needs
5.administrative needs
6.budget processes (operating and capital)
7.long range planning
8.staff policies
9.staff structure and duties
10.Council/Fire Department relationship
11.communications with Council
12.authorizing by-laws
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Section 1 – Introduction
13.reporting structure and requirements
14.governance structure
15.public education
16.fire prevention
17.emergency management
18.building code and fire code review
19.mutual aid and/or partnerships and/or automatic aid agreements
20.workload and response records
21.volunteer management
22.comment on the Fire Underwriters Survey and how what we do might
effect our scoring on that survey.
23.Firefighter training in relation to established services and time allocation
for training activities
24.Efficient and effective use of resources, and effectiveness to provide
services uniformly across the municipality
25.Fire services hazard/risk assessment and gap analysis between
hazards/risk and current level of fire & rescue services provided by municipality
Administration /Council
1.workload and response records
2.staffing needs
3.staff policies
4.staff structure and duties
5.administrative needs
6.reporting structure and
requirements
7.volunteer management
8.communications with Council
9.Council/Fire Department
relationship
10.governance structure
11.authorizing by-laws
12.long range planning
13.building/space requirements.
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Section 1 – Introduction
Equipment Issues
1.inventories
2.equipment I apparatus needs
Emergency Matters
1.emergency management
2.mutual aid and/or partnerships (eg. automatic aid
agreements)
Finance
1. budget processes (operating
and capital)
Fire Prevention
1.public education
2.fire prevention (eg. inspections)
3.building code and fire code review.
4.simplified risk assessment
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Section 2 – Fire Protection Challenge
Section2 FIRE PROTECTION CHALLENGE
Municipal Fire Protection System
The municipal fire protection system employed in the Municipality of Bayham is consistent with other
municipalities throughout the province and the country. This system employs a number of disciplines to
meet its obligation to provide protection to the public from fire and other emergencies. These various
disciplines include suppression and rescue capabilities, fire prevention and public fire safety education,
along with a number of support functions such as training, communications, etc. The Office of the Fire
Marshal for Ontario (OFM) sets many key requirements for the standard of operation for every fire
service in the province.
This is accomplished in various ways, such as legislation (i.e., The Fire Protection and Prevention Act
aka FPPA), guidance notes, advisory personnel, standards, etc. The most notable OFM standard is for
emergency response to a single family two storey detached dwelling (also known as the 10 in 10 rule).
This response format stipulates that a minimum of 10 firefighters must respond to a fire in a dwelling
(as stated) in 10 minutes, 90% of the time. This is for areas of a Municipality with a pressurized water
system.
The OFM states: The Ontario Fire Safety and Protection Model identify three lines of defence in
providing public fire protection:
•public education and prevention
•fire safety standards and enforcement
•emergency response
The first line of a municipal fire protection system is its fire prevention activities. These activities include
education, inspection, code enforcement, plan and site evaluation, and sound building and fire codes
adherence.
The emergency response services are provided by the suppression division, which is called upon to
deal with fire emergencies as well as rescue, hazardous materials incidents, vehicle extrication,
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 2 – Fire Protection Challenge
medical, etc. The largest cost of operation is for fire suppression services with immediate response to
fires, which includes the rapid rescue of occupants, confinement and extinguishment of fire, and
salvage.
Historically, the fire service has always provided assistance to the public for medical reasons.
Involvement in medical issues began when fire fighters were injured at the scene of fires and had to
look after themselves. So, they started carrying medical supplies with them and taking first aid training.
This progressed into providing medical assistance to those members of the public who became injured
at fires and so on. In the 1970’s, from the United States came the introduction of paramedics on fire
trucks, and fire departments enhanced their level of medical service with the introduction of cardio
pulmonary resuscitation (CPR). This was followed in the late 1980’s and early 1990’s with the firefighter
defibrillation program. Medical calls now account for up to half of most fire service emergency calls for
assistance from the public.
EMERGENCY CALL EXPERIENCE IN BAYHAM
Information provided to us by the Bayham Fire Department is consistent with our experience found in
today’s fire service across the province. For many years, the pattern of emergency responses across
Ontario has been a decrease in structure fires, and considerable increase in other “assistance to the
public” such as rescues and medical calls. Also, the fire service is witnessing a striking increase in
motor vehicle collisions requiring fire department expertise such as extrication of injured persons
(Municipality of Bayham – past four years, motor vehicle collisions = 21% of total calls). From our
review of emergency calls in Bayham, we see this same trend. Specifically, motor vehicle accidents
along Plank Road and Talbot Line are the source of most of the vehicular calls in Bayham. We
reviewed the motor vehicle accidents for the years 2006 to 2008 and found these two roads accounted
for 25 of the 68 total MVCs (motor vehicle collisions).
Historical Trends – Total Emergency Calls
The following Chart 1 – illustrates the Emergency Call History for the years 2000 to 2008.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 2 – Fire Protection Challenge
Chart 1 – Emergency Call History
Ch ar t 1 - Em e r g e n cy C all His to r y
96 99 98 85 89 106
130 113 119
0
50
100
150
2000 2001 2002 2003 2004 2005 2006 2007 2008
9 Ye a rs
A ll Calls
Aside from the call decreases in the years 2003 (85 calls = -13% decrease) and 2007 (113 calls =
-13% decrease), the emergency call picture in Bayham has witnessed an overall steady increase,
which is typical in today’s fire service. The public’s increasing demand on fire and other emergency
services has resulted in greater call volumes. Overall, the emergency call “work load” has increased
24% during this nine year period.
Historical Trends – Medical Calls
Since the early to mid 1990’s, medical calls have been increasing dramatically. Many municipalities
adopted a more aggressive response to medical emergencies with the arrival of defibrillators. This
writer’s experience in the City of Niagara Falls witnessed a pre-defibrillator annual call experience of
approximately 10% of all calls being medical. With the introduction of these devices in 1994, medical
calls quickly escalated to comprising 50% of all calls.
Chart 2 (Medical Calls) illustrates the medical call trend for Bayham (Years: 2000 to 2008):
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 2 – Fire Protection Challenge
Chart 2 – Medical Call History
Chart 2 - Medical Call History
31 38
60
47
68
0
20
40
60
80
2004 2005 2006 2007 2008
Fi ve Ye a rs
Series1
When comparing the Medical Calls in Chart 2 to the overall call experience noted in Chart 1, we see
how medical calls dominate the total call picture. In fact, Medical Calls accounted for 60.7% of all
emergency calls in 2008.
Historical Trends – Fire Calls
Fire Calls, as mentioned previously, are becoming fewer as the public becomes more aware of how to
prevent fires through local and provincial initiatives regarding public fire safety and education. Better fire
codes and building codes, plus the associated enforcement rules, are making for a safer environment
from fire. One must always caution though that while this trend shows improvement, the fact remains
that fire is still a devastating occurrence to home owners, business owners and communities.
The following Chart 3 provides visual information regarding the fire history over the past 5 years in
Bayham.
Chart 3 – Fire Call History
Chart 3 - Fire Call History
13
7
34 30
19
0
10
20
30
40
2004 2005 2006 2007 2008
Fi re Ye a rs
Series1
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 2 – Fire Protection Challenge
Historical Trends – Motor Vehicle Collisions
Motor Vehicle Collisions accounted for 26% of all calls responded by the Bayham Fire Department
over the past 5 years. The two prominent roads which witnessed the most motor vehicle collisions were
Talbot Drive and Plank Road. Our review of the past 3 years of traffic accidents shows MVCs along
these 2 roadways accounted for 38% of all such reported occurrences. As Talbot Line is a Provincial
Highway, the Municipality is reimbursed for any costs incurred while responding to MVCs on this
roadway. In 2008 the Municipality received $2100 for responses on Highway 3 as compared to $9800
in 2007.
The following Chart 4 – Motor Vehicle Collisions provides a statistical breakdown of the years 2004
through to and including 2008.
Chart 4 – Motor Vehicle Collisions
Chart 4 - Motor Vehicle Collisions
15
28
24 22 25
0
5
10
15
20
25
30
2004 2005 2006 2007 2008
5 Ye a r Hi story
Series1
Historical Trends Summarized
We have presented an overview of the various main emergency responses covering the years 20004
to 2008. There are other types of emergencies which require fire department response such as grass
fires, unauthorized burning, vehicles, vandalism, smoke alarms and other classifications (e.g. hydro
wires, agricultural property, etc.). The following Chart 5 summarizes these calls for the years shown:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 5
Section 2 – Fire Protection Challenge
Chart 5 – Annual Incident Volumes by Incident Type
C h ar t 5 - A n n u al In cid e n t V o lu m e s b y In cid e n t T yp e
24 25 29 34 30
18 16
27 24 22
28 31
38
61
47
15 16 12 11 14
0
10
20
30
40
50
60
70
03 04 05 06 07
C alendar Y ear
Fire
M VC
M edical
Ot her
Comparisons with Other Municipalities
How does Bayham’s emergency response record fit with other similar sized municipalities? To see how
Bayham’s record compares with other similar sized municipalities with the same type of fire service
configuration, we reviewed a survey we had conducted in late 2008. For this survey, we sent out over
100 questionnaires and received approximately 27 replies. For our purposes herein, we took a
comparable population spread of 4000 to 10000 residents. Bayham’s population of just over 6700 fits
approximately mid-center in this comparison chart. Asphodel-Norwood is at the low end with a
population of 4254 and Cavan Monaghan is at the high end with 8800.
The following Chart 6 provides a snapshot of how Bayham’s overall responses compares with some
other similar sized municipalities. (Note: this information is intended for comparable information only).
Chart 6 – Response Comparables
Chart 6 - Response Comparables
182 119
394
88
397 438
0
200
400
600Asp h o d e l ...B a y h a m P u s l i n c h W e s t P e r t h S o u t h B r u ..C a v a n M o ...
S im il a r P opul a ti o n
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 6
Section 2 – Fire Protection Challenge
Cavan Monaghan had the highest call volume (438) of the six municipalities listed, while West Perth
recorded the fewest (88). Bayham’s total calls for 2008 were in the bottom tier of these comparables.
There is a human cost to the emergency calls in the volunteer firefighter system as the higher call
numbers mean an ever increasing commitment to duty. This can and does cause stress on personal
family relations and full-time work issues. The last full reporting year (2008) lists 119 emergency calls
which, added to this, are the other volunteer requirements such as training which also places a heavy
demand load on firefighters.
These calls are spread over two fire stations, which is a good indicator that, presently, the call volume is
not overly burdensome. For example, in Niagara Falls, one volunteer station alone consistently runs
over 400 calls. The volunteer fire service in Grimsby operates predominately out of one fire station. It
experienced 750 calls in 2007 of which, it is reported, 30% were medical. The Town of Lincoln
experienced approximately 800 calls of which one fire station (Beamsville) accounted for 365. Lincoln
had approximately 30% medical and for 2008, their medical calls increased to approximately 40% of
their total. It should be noted both Grimsby and Lincoln’s populations are approximately 3 times greater
than Bayham’s (approximately 21,000 each).
Conclusion
The preceding information of emergency calls over the past nine reporting years does give some in-
sight into planning needs for the future. Actual fire calls are seen as relatively low in relation to the other
emergency calls. This illustrates that the fire prevention efforts of the Fire Service are paying dividends.
Even with relatively low numbers of fires, the fact remains that a single fire can be devastating to a
community. A fire could be at a senior’s home or major industry that brings loss and negative impact on
the community.
Motor vehicle accidents will always be a potential growth area for emergency calls for help. As the
population ages and the demand for increased health protection rises, the impact on the fire service will
be inevitable. Fires will continue to be low in number but not in impact. A serious fire in downtown
Toronto (February 2008) destroyed a number of century old buildings and their businesses. Later in
April, 2008, a reported “massive” fire in the historic part of downtown Bowmanville destroyed a number
of buildings there in a matter of hours.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 7
Section 2 – Fire Protection Challenge
The overall history of emergency calls in Bayham does not, in itself, cause concern and appears to be
in-line with our experience. The two areas which should be watched are medical and motor vehicle
calls. The medical calls standout from the others and should continue to be given special attention as
they appear they are receiving. These are the two main service issues which are driving emergency
response numbers and their associated costs.
The only emergency response type of call which could possibly be cut back on is medical. Council
could rescind the medical option totally, direct the Fire Chief to make changes to the call-out criteria or
could extend the time delay protocol so the fire department would respond only when the ambulance is
“known” to be delayed in a life threatening situation. Ever since the fire service became an active player
in medical responses, their commitment has resulted in increased calls for help. We don’t believe there
is a public will at this time to curtail fire responses for medical calls.
Overall, are the Bayham call numbers approaching a break point in workload? When looking across
the greater volunteer system in place in North America, our opinion is no. We have seen many
volunteer fire services reporting much higher numbers than these. This is not to say that in a single fire
service, call numbers, such as reported, won’t illustrate a problem.
There is another important factor relating to emergency calls that must be watched. The style of fire
service employed in Bayham uses “points per call” firefighters in place of “paid on call” or the much
more expensive full-time firefighters. The Bayham firefighters earn points for every call they attend. So,
the more calls attended the greater the overall remuneration they receive. When municipalities attempt
to cut back too hard on calls, they affect the income of their firefighters. This can be a cause of
resentment and disenchantment in the ranks. The average full-time firefighter, in Ontario today, earns
in excess of $70,000 exclusive of benefits. Bayham’s fire service, when all issues are considered, is an
excellent value for the money.
We are not suggesting that calls be allowed to continue exponentially without taking measures to
manage them, as limited as that may be. This is mentioned so that alternative costs should be used as
comparators to Bayham’s costs when considering affordability.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 8
Section 3 – Fire Risk
Section3 FIRE RISK
The Municipality of Bayham is a relatively large, mostly rural community, covering approximately 245
square kilometers, with commercial areas located in the former villages of Port Burwell, Vienna and
Straffordville. Aside from these village areas, large farms are the predominant feature.
Generally speaking, older sections of a typical municipality are at greater risk to fire and have a greater
fire loss potential than do newer areas built post Ontario Building Code era (circa 1974). During my time
as Fire Chief for the City of Niagara Falls, I conducted an in-depth evaluation of the city’s history of fires
using comparison data obtained from the National Fire Academy in Emmitsburg, Maryland. Simply put,
the comparator information stated that most of our fires, and specifically, the more serious fires, had
occurred in the older sections of the city. This analysis, at the time, indicated this was a typical situation
in other municipalities. Buildings erected during the era of the Ontario Building Code are much better
designed and constructed than that of pre-building code times. Today’s residential and commercial
buildings are much better constructed against fire severity than ever before.
Bayham’s fire experience over the four year period from 2005 to 2008 illustrates the vagaries of fire and
its accompanying fire loss impact on a community. The following Chart 7 provides us with this picture:
Chart 7 – Annual Fire Dollar Loss
Ch ar t 7 - A nnu al Fir e Do llar Lo s s
0
200,000
400,000
600,000
800,000
1,000,000
05 06 07 08
Ye ar
Do llar s
As we can see, the year 2005 was not a good year for fire damage. One fire alone accounted for
almost half of the total fire loss ($450,000.00).
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 3 – Fire Risk
Risk Assessment Method
The goal of risk assessment is to reduce risks to an acceptable (or tolerable) level. A zero risk level is
not attainable. Risk reduction efforts to achieve acceptable risk must work within the real world
constraints of feasibility, practicality and cost. Resources are always limited, and cost is an important
factor in obtaining acceptable risk. A practical solution to achieving acceptable risk is a good faith
application of the hierarchy of controls within the risk assessment process. This approach, coupled with
the “As Low As Reasonably Practical” (ALARP) framework, are useful guides in reducing risks to an
acceptable level.
The fundamentals of the risk assessment process are common:
•identify hazards,
•examine risk options,
•develop plan,
•test plan (adjust if necessary) and finally,
•implement and monitor plan.
The following Chart 8 (Risk Assessment Flow Chart) illustrates this process:
Chart 8 – Flow Chart
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 3 – Fire Risk
Demographic Indicators
The latest population figures (Statistics Canada) indicate over 6727 people live in Bayham, which is an
increase of approximately 352 persons since the last census in 2001. This was an approximate gain of
5.5% compared to the provincial average growth of 6.6%. The population density of Bayham is 27.5
persons per square kilometre compared with the provincial average of 13.4. The median age of the
population is 34.7 years; slightly younger than the Provincial average of 39. The percentage of citizens
15 years and older is 78.5%. This is split 51% male and 49% female.
Referring to Bayham’s Official Plan (OP) the following is an excerpt regarding population growth:
“The projected population for the Municipality by the year 2010 is 7,406 based on extra
population of fairly consistent historical growth rates”.
Residential Risks
The Municipality of Bayham is a mostly rural community located along the shores of Lake Erie and
bordered by the Townships of South West Oxford, Malahide and Norfolk. The total number of private
occupied dwellings in Bayham is 2,195. These buildings represent 88.4% of all occupied dwelling units.
The number of dwellings constructed before 1986 is 1,570. The number of buildings constructed
between 1986 and 2006 was 620 (Source: Statistics Canada).
The large land mass coupled with the widely dispersed residences and commercial areas present a
challenge to the fire service in providing consistent fire response. The present locations of the two fire
stations appear to be reasonably well suited to the specific protection areas in which they are located.
Commercial Industrial Risks
The Municipality’s Official Plan (Page 4-1 Section 4.1.5) states:
“Three major concentrations of urban development have been designated as “Villages” in the
Official Plan of the Municipality of Bayham. The villages of Port Burwell and Vienna have the
capability of accommodating urban types of development on full municipal services including
piped water and sewerage facilities. The village of Straffordville has the capability of
accommodating urban types of development on municipal sewers.”
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 3 – Fire Risk
The three villages mentioned have small concentrations of typical commercial enterprises
accompanied by residential areas. Located throughout the Municipality are industrial operations such
as: ETBO located on Richmond Road; Future Transfer Inc. on Talbot Line; Phil Mauer and Associates
on Eden Line; Underhill Farm Supply on Calton Line, Exchange Air on Corinth, and Tiltran Service (the
Municipality’s largest industrial operation) on Bayham Drive. The Municipality’s Industrial Park is
located on Bayham Drive.
The Fire Chief’s Report to Council: Fire Prevention and Education Simplified Risk Assessment
Number: P2009-016 stated the following:
“The commercial group contains two large chemical warehouse facilities, and two large
manufacturing operations. These businesses account for the majority of employment
opportunities within the municipality. There is potential for a negative economical impact to the
municipality should one or more of these businesses close for a period of time.”
In our opinion, these commercial and industrial operations do not appear to present anything unusual
or onerous for emergency response personnel.
Farming
The Municipality of Bayham is mostly a farming community. Large farming operations by season can
also pose a significant risk with the storage of fertilizers and chemicals in unknown quantities and
locations. The trend in farming and chemicals is to have companies supply and spread the chemical on
the land. This has done away with large amounts of pesticide, herbicide and fertilizer storage on-sight
at the farm. However, it is still considered a risk due to not knowing who still stores these chemicals and
to what amount they might have.
Most of the farms in the area have small amounts of Anhydrous Ammonia on-site. Another potential
problem that firefighters must be aware of, and trained to deal with is grain silos and driers (picture
below).
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 3 – Fire Risk
Transportation Risks
We have reported earlier herein the history of Motor Vehicle Collisions which the Bayham Fire
Department has responded. During our two tours of Bayham, we travelled many of the roads and found
them generally to be in good repair. Talbot Line and Plank Road, as we reported, lead all roadways
with the most accidents. Talbot Line (aka Highway 3) is a major connecting roadway for a number of
municipalities located along Lake Erie. Hence, it receives a considerable volume of traffic both
commercial and personal.
MVCs will always be a leading reason for emergency response and possible victim extrication. One of
the Municipality’s “Specialty Teams” is dedicated to “heavy rescue,” which is the use of mechanical
devices (Jaws of Life) to assist with the removal of victims of vehicle accidents. This issue will be further
addressed later in this report.
Wind Turbines
Dotted along the shoreline are a number of wind turbines (Picture inset). Bayham is one of three host
municipalities to the Erie Shores Wind Farm spread along the entire lakefront. A typical wind turbine
design can reach 230 feet in height. Blade diameters can be as much as 130 feet. Rescue operations
in these turbines would present some unusual problems due to their height.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 5
Section 3 – Fire Risk
The former Fire Chief informed us that the roll for responding firefighters to one of these wind turbines
would be as support to company personnel.
Conclusions
The OFM has set out what it believes are the eight criteria which every municipality in Ontario should
use to form the basis of understanding their fire services capabilities. The document is titled, the
“Comprehensive Fire Safety Effectiveness Model,” and the eight criteria are:
1.Impact of Fire
2. Fire Prevention Program Effectiveness
3. Public Attitude
4. Fire Risk
5. Detection Capabilities
6. Built-in Suppression Capabilities
7. Intervention Time
8. Fire Ground Effectiveness
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 6
Section 3 – Fire Risk
The Fire Chief, as mentioned, took us on two detailed tours of the Municipality. He pointed out the
various areas of risk and provided excellent information on how emergencies have been handled, and
just as importantly, how they will be handled. We also met with all of the Fire Department’s officers and
firefighters. We were impressed with their knowledge and understanding of their area of responsibility
and the risks involved.
As matters are presently, the risks presented in this report lie within the capacity of the Bayham Fire
Department’s abilities to deal with them effectively by themselves, or have in place acceptable aid
agreements to resolve emergencies beyond their present capabilities. We conclude that the risks have
been identified and the basis for addressing these risks is sound and well thought out. The Bayham
Fire Department has also identified the issues which need addressing within each identified risk.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 7
Section 4 – The Organization
Section4 THE ORGANIZATION
Fire departments across the world are structured along paramilitary lines of organization. There is an
officer corps to lead the organization in administrative and operational situations. The paramilitary
design is less rigid and less formal than other military style groups, and this allows for greater
interactivity between the various levels of authority. Similar to a rubber band, this style of governance
does allow for much flexibility, which does have its needed limits.
The usual head of a Fire Department is the Chief (Fire Chief). Assisting the Chief in the day to day
operations of the fire service is usually, but not always, a Deputy Chief (sometimes referred to as
“Assistant Chief”). In fire services with a Deputy Fire Chief, this person is responsible to the Chief and
carries the same authority as the Chief when the Chief is not available. Below this level of authority flow
the various divisional leaders with such titles as Platoon Chief, Director, Station Commanders, Battalion
Chief, District Chief, Area Chief, etc.
These divisional leaders would in effect be “mini-chiefs” in their own respective area of authority such
as the Division of Fire Prevention, Training, Communications, etc. The number of divisions is usually
dependent on the overall size of the organization. A Fire Suppression Division, for example, could be
sub-divided into smaller units known as platoons or battalions. Each such sub-division would require
some sort of “head” or “leader” who could be called a Platoon Chief or Battalion Chief, etc. The
management structure of the Bayham Fire Department follows along these lines. The Municipality of
Bayham’s fire service has one shared-time secretary (assistant).
The greater fire service industry, especially in Ontario, is constantly facing new challenges and
increasing amounts of legislation, which impacts the ability to properly administrate. The present Fire
Chief wears two hats because he is also responsible for by-law enforcement matters. Each of the two
fire stations each has its own Station Chief. Assisting these Station Chiefs are two captains and a
training officer. These officers are directly responsible to the Fire Chief for station specific issues and
ensuring all matters of concern are communicated up and down the “chain of command” structure
integral to the proper functions of a fire service.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 4 – The Organization
MISSION AND OBJECTIVES
The industry standard overall mission of a fire service is to protect its citizens from the ravages of fire
and rescue of persons in distress. The objectives are to do this in the safest, most efficient and effective
manner. Simply stated, fire services throughout the province have increased their original purpose
many fold. From simply fighting fires and rescuing victims from fires, they are now called upon to
perform a multitude of services. Motor vehicle accidents, emergency medical, hazardous materials,
rescue (confined space, hi-angle, etc.), water/land based rescues, search and rescue, carbon
monoxide, and flood assistance, readily come to mind.
The Bayham Fire Department’s Mission Statement reads:
“The primary mission of the Bayham Fire Department is to provide a range of programs to
protect the lives and property of the inhabitants of the Municipality of Bayham from the adverse
effects of fires or exposure to dangerous conditions created by man or nature.”
LEGAL BASIS AND RESPONSIBILITIES
The Municipality of Bayham Fire Department operates their fire services under “ By-Law #2007-044 ,
Being a By-law for the Establishment of the Municipality of Bayham Fire Department ” and any
amendments.
According to the by-law, the Fire Chief’s main duties and responsibilities are spelled out in this by-law
as respects to the Municipality. The main responsibilities are:
“Under this by-law, the Fire Chief has such responsibilities as the proper administration and
operation of the department, for the discipline of its members shall develop and publish such
written standard operation guidelines and such general orders and departmental rules as may
be necessary for the care and protection of the department equipment and department
personnel, and generally for the efficient operation of the department, provided that such orders
and rules do not conflict with the provisions of any by-law of the municipality.”
These are some of the main points in this by-law by which Municipal Council expects their policy
regarding fire and emergency protection services to be administered and managed. There is another
important paragraph in this by-law, which is most important in the proper administration of this Fire
Department. It reads as follows:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 4 – The Organization
“The Station Chiefs shall report to the Chief on the activities of the divisions that are his
responsibility and carry out the orders of the Chief, and in the absence of the Chief, the Station
Chief has all the powers and shall perform all the duties of the Chief.”
The Station Chiefs represent the Fire Chief in the daily activities of the Fire Department whether
engaged in emergency or non-emergency operations because the Fire Chief cannot be everywhere at
once. The Fire Chief must have the confidence that his (and Council’s) direction is followed.
The operation of a fire service in Ontario falls under the mandate of “The Fire Protection and
Prevention Act 1997” (FPPA). Municipalities fall under the Municipal Act however; the FPPA also states
municipal responsibilities regarding fire services.
Simply stated, a municipality must:
“(a) establish a program in the municipality which must include public education with respect to
fire safety and certain components of fire prevention; and
(b) provide such other fire protection services as it determines may be necessary in accordance
with its needs and circumstances.”
These municipal responsibilities fall to the person they appoint as Fire Chief. The legal ramifications of
failing to provide these services, in the opinion of the Fire Marshal, are:
Failure to provide services
“(8) If a municipality fails to adhere to the recommendations made by the Fire Marshal under
subsection (7) or to take any other measures that in the opinion of the Fire Marshal will remedy
or reduce the threat to public safety, the Minister may recommend to the Lieutenant Governor in
Council that a regulation be made under subsection (9).The enforcement of the Ontario Fire
Code is a responsibility of the fire service. In applying the Ontario Fire Code, and unless
otherwise stated, the Fire Chief is the “chief fire official”.
FIRE PROTECTION AGREEMENTS
Typical of many fire services, the Municipality of Bayham has agreements with its neighbours regarding
fire protection. The following lists these agreements and the main purpose of each:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 4 – The Organization
Automatic Aid
The Automatic Aid Agreement currently in place with South-West Oxford calls for an initial response
from the Brownsville Fire Station #1 (located at 292192 Culloden Line
Brownsville, Ontario) to attend life threatening situations and structure fire calls north of Talbot Line
and to provide immediate rescue and suppression activities until the Straffordville Station can arrive
and relieve them. The cost for this service is $900.00 per call. This covers one hour’s service, at which
time Brownsville is to return to their station.
The response area is defined as the northerly portion of the Municipality taking in addresses on the
south side of Hwy 3 and to the north to the south side of Pressey Road, westerly to the east side of
Springerhill Rd and easterly to the west side of Bayham Dr. South-West Oxford provides this service
from their Brownsville fire station located approximately 2 to 3 kilometres north of the municipal
boundary on Culloden Road (See Appendix A – Map 1 Automatic Aid Coverage Area).
During our tours of the Municipality, the Fire Chief expressed some concern over a component of
the automatic aid response area. It was his opinion that if Tillsonburg responded to all
addresses on Elliot Road, on the south side of Pressey Rd from Elliot Rd to Bayham Drive, west
side of Bayham Dr. from Pressey Rd to Hwy 3 and both side of Hwy 3 from Bayham Dr to Elliot
Rd. (this would take in the Bayham Industrial Park) they would have a quicker response time.
He further explained that if some analysis was performed, then Tillsonburg might respond faster
than Brownsville to the area from Somers Road East to Bayham Dr. with the same north and
south boundaries.
Automatic aid agreements are excellent tools for any municipality to use when there are areas within
their boundaries which are difficult to access using their own resources. But, they can be accessed by a
neighbouring community at a cost which is considerably less than the cost the home department would
have to pay.
Mutual Aid Agreements
A Mutual Aid Agreement is a formal arrangement with neighbouring communities to help one another
during extreme emergencies. It is an ideal method to share valuable resources during severe situations
that would strain or break local fire department’s ability to handle emergencies. Most every county or
region in Ontario has its own mutual aid agreement. Elgin County is no exception. If one municipality is
facing extreme fire conditions in a rural area, it may require extra water transportation. A call for mutual
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 4 – The Organization
aid would then be made through the County Fire Coordinator’s office. Bayham both shares in such an
agreement and also benefits from the same.
While it is common that these “shared responsibilities” are contained within a County or Regional
Government, there is nothing preventing one municipality from reaching across the County or Regional
border and asking another community to enter into a mutual aid agreement. Bayham has done this with
their neighbour South-West Oxford. The Mutual Aid Agreement (Council Report NUMBER: P2005-
006) has been in effect since February 2005. This agreement is not to be confused with the Automatic
Aid Agreement already in place with South West Oxford.
It is our opinion this “additional Mutual Aid Agreement” is an excellent way to share limited resources.
FIRE DEPARTMENT MANAGEMENT
The Fire Chief handles the normal administration and management matters affecting the Fire
Department. The Administrative offices are located at the Municipal Offices of Bayham in Straffordville.
The Fire Chief
“A.. is responsible for the enforcement of this by-law and the general orders and departmental
rules.”
One of the main functions of the Fire Chief is to prepare the budget and exercise budgetary control.
The Fire Chief is the Municipal Council’s representative in the day to day management of the fire
service. The fire service operates on a “chain of command” structure. Therefore, it is imperative that
communications flow along these lines. If a firefighter needs to have something communicated, he
goes to the immediate officer in the chain, and so on up to the Chief. If council needs to send a
message to the fire service, it is their responsibility to talk to the immediate officer of their fire
department. Their immediate officer is the Fire Chief. Circumventing the lines of authority most often
spawns problems within the organization and is ill advised.
The FPPA states:
“Section 6(3) – A Fire Chief is the person who is ultimately responsible to the council of a
municipality that appointed him or her for the delivery of fire protection services.”
The Municipality of Bayham’s Fire Chief wears many hats in the performance of his duties from the day
to day management of the offices of the Fire Department to being overall Incident Commander at
major emergencies. The present Chief is also the By-law Enforcement Officer/Property Standards
Officer, Provincial Offences Officer and Community Emergency Management Co-ordinator.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 5
Section 4 – The Organization
Reporting directly to the Fire Chief are the Station Chiefs. The Station Chiefs handle the routine
managerial functions of their respective fire station, as well as taking command at emergencies, when
necessary. It is most imperative that the Station Chiefs represent the Fire Chief in a positive manner. It
is their responsibility to ensure all communications both “up and down” the chain of command are
handled effectively and efficiently. If a firefighter has a question regarding the fire department and seeks
the input of the Fire Chief, then through his station’s “chain of command” it is ultimately the Station
Chief who ensures the question is put to the Fire Chief, and that the Fire Chief’s answer is conveyed
down the chain.
Lines of Communication
Lines of communication are very important for the well being of a fire department. Fire chiefs must be
able to rely on orders, directives, SOG’s, routine information, etc. getting out to every firefighter. Every
firefighter must feel confident that their questions, concerns, issues get relayed to the officer in charge
who is best placed to provide an answer. This all takes place in the “chain of command” format.
During our meetings with the fire officer and firefighters at the two fire stations, we were encouraged by
the overall satisfaction of fire personnel regarding the lines of communication and their treatment. One
area regarding communications up and down the chain of command amongst the firefighters that
needs improvement is at the Port Burwell Station. This was especially so in dealing with important
training information, fire fighter questions/concerns and the like. We strongly advise improvement in this
area.
TRAINING AND QUALIFICATIONS
The OFM certifies Ontario training officers to the Company Officer Program. The Fire Protection and
Prevention Act, 1997 (FPPA), clauses 9 (2) (d) provides authority to the OFM for training and
evaluation of firefighters. This is not a mandatory program for firefighters.
Recruits
The Municipality’s qualifications to become a firefighter are:
1.Must be at least 18 years of age but not more than 65.
2.Must pass a medical exam.
3.Must pass such tests as may be required by the Fire Chief.
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Section 4 – The Organization
4.Must attend pre-employment interviews as required.
5.Must hold a valid Class “D” license with “Z” endorsements or obtain such a license within one
(1) year of joining the fire department.
The Municipality has laid out a series of steps for becoming a volunteer fire fighter with their fire
department. The process begins with acceptance of the individual as an “Auxiliary Fire Fighter.” This
person is allowed to perform many of the functions of a fire fighter, with the exception being that they do
not participate in any hazardous situations.
The required “Knowledge, Skills and Abilities” as stated in the Job Description for an Auxiliary Fire
Fighter are:
“Mental alertness, mechanical aptitude, ability to get along well with others, willingness to
perform tasks assigned, conscientious and dependable, good physical condition and
successfully passed the Bayham Fire Department’s pre-employment job related performance
test.”
Recommendation: this document asks that the perspective….
“Auxiliary Fire Fighters are to report to the Training Officer of their department.”
It is our recommendation that this wording be changed to reflect the actual fire station not department.
Training and Qualifications Conclusion
OFFICER QUALIFICATIONS
There are four levels of Fire Officers in the Bayham Fire Department system exclusive of the Fire Chief
position. They are: Station Chief, Captain, Training Officer and Fire Prevention Officer. Each job
description outlines the required knowledge, skills and abilities plus experience and training required.
For example, the position of Station Chief calls for the following:
“REQUIRED KNOWLEDGE, SKILL AND ABILITIES:
good knowledge of modern fire fighting and fire prevention methods
good knowledge of the municipality and surrounding areas protected by agreement
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Section 4 – The Organization
good knowledge of the type of buildings in the municipality
good knowledge of rescue and first aid procedures
good knowledge of safety procedures, rules and equipment
must have the ability to supervise fire fighters, maintain discipline, have sound judgment, be
resourceful and in good physical condition
EXPERIENCE AND TRAINING:
Recommend at least five years satisfactory experience as an officer and have received
additional training at the Ontario Fire College, regional fire schools or educational seminars.”
It is very difficult in a volunteer system to get and keep quality people for extended service. It is also
difficult to get potential officers, and for officers to take the time to better their education away from their
already heavy commitment of time to the Fire Department. This being said, there are still training and
education issues that are a must in today’s fire service environment. An essential training issue, in my
opinion, is the Incident Command System.
It is recommended that the Fire Chief review the present officer qualifications and make such changes
as necessary to ensure qualified persons are appointed for the respective officer levels. This would
include recognized training in the Incident Command System.
RECRUITMENT AND RETENTION
RECRUITMENT
We were very pleased to hear that recruitment has not been an overly burdensome problem, and
vacancies are filled in a relatively short period of time. However, recruitment is the most critical of
issues in any volunteer fire service. Without personnel, there is no fire service. A fully paid system
simply places an ad and does the proper screening and testing, and then placement of recruits. There
are many differences between the volunteer (or paid on call) systems and the fully paid one. For
example, volunteers have to live in a close proximity while full-timers don’t. Volunteers can refuse to
participate in emergencies while, in most cases, full-timers cannot. For a volunteer, this is not their main
source of income while for fulltime it is. The greatest overall difference is cost. Both versions of the
volunteer system are far less costly than the fulltime system. Those municipalities that have volunteers
must work very hard to maintain them.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 8
Section 4 – The Organization
There is, in North America, an on-going struggle to recruit and maintain volunteer firefighters. Times
have changed, and many are less inclined to get involved in such a demanding community endeavour.
Before, all a Chief had to do was spread the word he needed a couple of recruits and he would be
inundated with applicants. Today, the whole municipality must get behind a recruitment drive to fill
vacancies. Recruiting and retaining volunteer firefighters is an on-going struggle. This job is never
completed and should be addressed in a concerted way by the Municipality. An overall policy to deal
with recruiting new fire fighters, incorporating ideas such as the manner by which they are reimbursed,
benefits they receive, and finally, how they are to retire is highly recommended.
An excellent starting point would be to utilize the Ontario Fire Marshal’s “Volunteer Fire Service
Personnel Recruitment and Retention” guideline. Some excerpts from this guideline provide focus for
the Municipality in addressing this situation and are as follows:
“The Benefits
A coordinated, organized program demonstrates:
•How seriously the leadership takes the services provided and the individuals who
provide that service,
•Sound risk management principles,
•Proactive vs. reactive leadership within the department, and
•Leadership’s commitment to recognize volunteers, families and employers who
support volunteerism.
It identifies:
•Shortfalls and availability of volunteers in the community and,
•The number, type and quality of volunteers required to meet current or future needs.
It allows planning for:
•Recruitment and selection,
•Retention and succession, and
•Training and development of volunteers.”
Responsibility for Recruitment
Recruiting and retaining volunteers does take effort. Creating a committee within the Municipality and
assigning specific tasks can create opportunities for others besides the leadership to contribute to the
growth of the fire service and allows for a more concentrated effort.
The OFM provides the following Chart 9 “Volunteer/Recruitment/Retention” to illustrate the key factors
in such a policy:
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Section 4 – The Organization
Chart 9 – Recruitment Flow Chart
The document which supports this guideline is titled, “The Volunteer Recruitment and Retention
Resource Book” and should be obtained when formulating this policy.
An idea worth investigating is junior cadet training – focusing on exposing fire fighting at the junior high
school level. Teenagers would be allowed to join a cadet auxiliary group and take part in all non-
emergency functions. Some departments, we have heard, provide students with a “drop in center” at
regular intervals during the winter. They show movies and provide familiarization tours of the fire
station, and show how various pieces of equipment are used. This early exposure has proven to be
quite worthwhile in piquing interest in younger citizens.
In past years, many fire departments would only allow people to be members if they lived within a
certain distance from the fire station or the person had to live within the town’s boundaries.
In a fire system, such as Bayham’s, the whole community benefits not only from having a fire service,
but also, the lower taxes they pay for it. Employers do not normally like their personnel to drop work
and run off for any reason, however, should the employee be a member of the fire service, they should
be more amenable. Especially so if the Municipality shows them the cost savings this service provides
vis-a-vis the alternative full-time system.
A good recruitment system involves the whole community in a volunteer type service. Obviously, the
Fire Chief must demonstrate the need to recruit. Once this is done, then the administration, Municipal
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Section 4 – The Organization
Council, Officers and Fire Fighters must all work together to go to the community and seek
replacements.
The Municipality of Bayham should also look internally, in its own workforce, to recruit people to
volunteer for the fire service. The expectation here is that these workers would be allowed to leave for
certain emergency calls. This would show leadership to the business community.
RECRUITMENT SUMMARY
During our meetings with the Fire Chief and other Officers, we were provided the following commentary
regarding present recruitment:
“At the moment there is no real problem. However, they are seeing more middle-aged
volunteers in the service, because so many of the younger people are leaving the community in
search of work. There are currently no women in the service. The Fire Chief would like to see
more diversity for daytime calls in particular and to that end would like to see more women and
other ethnic groups (i.e., Mennonites) in the service. They currently have 37 firefighters plus the
chief and they have a very low turnover in staff at the moment.”
RETENTION
As critical as recruitment is, so too is retention. Many factors drive people to leave the fire service:
personal, age, work load, ill feelings, etc. The issues that keep firefighters contented are also long and
varied. Such issues as pride in community, duty to serve, social aspects, excitement of risk taking and
more can form the basis for long career. Other, more tangible issues such as good equipment and
excellent facilities where fire fighters can demonstrate their pride in the organization can have a big
impact on recruitment and length of service. Benefits and wages have played a positive role in retaining
personnel.
WATER SUPPLY
The most critical resource in any community’s fire fighting arsenal is water. Whether via a pressurized
system or transported by tankers, water is still the most effective fire fighting material. Ensuring an
adequate water flow rate is critical in fighting any structural or wildland fire. Bayham has a mixture of
water sources for fire fighting. They have pressurized water (hydrants) in Port Burwell and Vienna,
cisterns spread throughout the rural areas (see Appendix A – Rural Water Sources) and
tankers/pumpers.
In the Port Burwell and Vienna areas, there is a pressurized water system (see Appendix A – Port
Burwell – Map 2 and Vienna - Map 3; Hydrant Maps) which means pumpers can be hooked up to a fire
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 11
Section 4 – The Organization
hydrant and pump an almost endless amount of water onto a fire. Straffordville, on the other hand,
obtains its potable water from wells. Therefore, there may not appear be a sufficient supply of water
from this system to adequately supply a large fully involved structure fire at all times of the year. To
augment this supply, the Municipality has a number of cisterns located throughout the area. For fires in
the Straffordville area, the closest Municipal hydrant is located in Vienna approximately 8 kilometers
away. As well, some of the Municipality’s schools and churches have cisterns with 10,000 Imperial
Gallons available for firefighting year round.
COMMUNICATIONS SYSTEM
During our extensive review and meetings with Fire Officers and Fire Fighters, we found no mention of
any problems with the Municipality’s communication system. The present dispatch agreement with the
Town of Tillsonburg has proven to be very beneficial in terms of reliability. Bayham receives the
dispatch signal at two tower sites: Jackson Line (Norfolk Cooperative) and Elizabeth Street, Port
Burwell.
EQUIPMENT MAINTENANCE
Proper maintenance and repair of major fire apparatus and portable equipment is a must in the fire
service as equipment needs to be ready at all times for emergency usage. All fire apparatus and
support equipment appeared to be well maintained, and readily available for service. We did not see
any written policy to cover all of the proper procedures for maintaining equipment. It is our
recommendation that this be an undertaking by the next Fire Chief. The following information should be
referenced for this process.
The following National Fire Protection Associations (NFPA) standards along with Ontario Fire Service
Advisory Committee Guidance Notes relating to fire apparatus should be referenced for ensuring
proper vehicle maintenance and replacement/retirement:
NFPA 1500 “Standard on Fire Department Occupational Safety and Health Program:” The
following components advised therein should form the basis of any vehicle maintenance
program. They are:
•Must have an established program for checking and inspecting fire apparatus
•Must have a program for reporting deficiencies and problems found during the inspection of
the apparatus
•Must have a responsible person to manage and oversee the program
•Must establish a list of “out of service” criteria for the apparatus
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Section 4 – The Organization
•Must establish a schedule for preventative maintenance
•Must have qualified persons conducting preventative maintenance and repairs
•Must have a system to maintain maintenance and repair records for the life of the apparatus.
NFPA 1911 “Standard for the Inspection, Maintenance, Testing, and Retirement of In-Service
Automotive Fire Apparatus”
NFPA 1915 “Standard for Fire Apparatus Preventative Maintenance Program”.
Personal protective equipment (PPE) is essential for structural firefighting. Also called “bunker gear,”
this protective clothing consists of pants and jacket. The rest of the PPE is helmets, gloves, and boots.
The Fire Chief has setup an orderly schedule to replace worn bunker gear.
CONCLUSION
This section of this report focused on the overall organization, its legal basis, training and recruit issues,
communications matters, aid agreements (mutual & automatic), and key maintenance issues. Our
overall opinion is this fire department is well managed, and ensures most operations are in good
maintenance. Recruitment and retention are extremely important issues and must be focused upon.
It is our recommendation that the NFPA standards “NFPA 1911 Standard for the Inspection,
Maintenance, Testing, and Retirement of In-Service Automotive Fire Apparatus” and “NFPA 1915
Standard for Fire Apparatus Preventative Maintenance Program,” Section 21 Guidance Notes, and the
Fire Underwriter’s Survey form the basis for a formal policy regarding vehicle maintenance and
replacement.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 13
Section 5 – Finance
Section5 FINANCE
The overall finances of a community determine the various services that can be provided to the
citizens. Many communities today are facing some hard realities, and finding the services they offer
may, to some extent, have to be cut back or re-aligned. Bayham has one of the most affordable styles
of fire service. It is considerably more affordable than a service which utilizes “paid on call” or “full-time”
firefighters. Our review included an overview of the financial aspects of this Fire Department.
FINANCIAL CONSIDERATIONS
The financial considerations affecting the Municipality of Bayham’s budget are the same across the
province. Extending services to growth areas and replacing aged infrastructure present difficult
challenges and pressure the tax base. Hard and soft services, citizen demands and expectations,
growth, council direction, provincial cost impacts, and such outside pressures as the cost of products
needed to operate the community (i.e., fuel, insurances, daily operating supplies, office materials, etc.).
Last year’s unparalleled increases in the cost of fuel affected such heavy users as fire and roads
departments the most.
The main considerations facing a fire service are the public’s demands. Call volumes are not
controllable to any degree, and they affect the bottom line of the operating budget. We have seen how
medical and motor vehicle collisions are the two main drivers in call volume.
EXISTING CONDITIONS
The fire budget consists of these components – operational, reserves, and capital. The operational
budget deals with forecasted annual costs such as wages, fuel, routine building, fire apparatus, and
equipment maintenance, etc. The largest cost item contained in the operating budget pertains to
wages. The Municipality’s firefighters are reimbursed on a “point system.” This means every time they
are required to perform a fire department authorized event (emergency or non-emergency); they are
paid a fixed number of points for their attendance.
This is one of the most affordable ways of providing fire services today. The vast majority of fire
services use a “points system” or a “paid on call” system as opposed to an “annual salary” system.
Bayham has recognized the worth of their system and accorded a minimum dollar value for each point
of $10.00. A three year review of Firefighter Remuneration is shown in Chart 10 :
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 5 – Finance
Chart 10 – Firefighter Remuneration
To bring these figures into perspective, the overall annual remuneration paid to all firefighters would be
less than the overall cost of providing one full-time firefighter at today’s wages.
OPERATING BUDGET
The Fire Department’s past 3 years of approved Operating Budget are seen in Chart 11:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates
79,16
5
76,70
7
81,55
1
74,00
0
75,00
0
76,00
0
77,00
0
78,00
0
79,00
0
80,00
0
81,00
0
82,00
0
200
6
200
7
200
83 Year
Perspective
Chart 10 - Firefighter
Remuneration
Remuneratio
n
2
Section 5 – Finance
Chart 11 – Operating Budget
This reflects a 13% increase over these 3 years. The next Chart 12 shows how Bayham’s Fire
Departments Operating Budget compares to some other similar sized municipalities with similar fire
services.
Chart 12 – Some Comparables
Attempting to accurately compare one municipality with another is very difficult in the fire service.
Population size and type of fire service are the beginnings of comparables, but from this point on there
are many variations. Are the firefighters paid in a “points system” or are they “paid on call?” How many
fire stations does each municipality operate? How many firefighters does each have? How many fire
trucks? What types? Physical size of the municipality contributes to the problem. Are there major busy
roadways dissecting the municipality, with the inevitable off-shoot of motor vehicle collisions?
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates
341,19
0
318,54
1
301,97
0
280,00
0
290,00
0
300,00
0
310,00
0
320,00
0
330,00
0
340,00
0
350,00
0
200
8
200
7
200
63 Year
Record
Chart 11 - Operating
Budget
Op
Budget
Chart 12 - Some
Comparables
0
500,00
0
1,000,00
0
1,500,00
0
2,000,00
0
1
2008 Budget
Comparables
Asphodel-
NorwoodBayha
mPuslinc
hWest
PerthSouth Bruce
PenCavan
Monaghan
3
Section 5 – Finance
We could go on suffice to say the comparables we used for this purpose and the information can only
be used on a selective basis. We were very encouraged to see that the approved dollars amounts for
the years 2006 and 2007 were actually under spent. For example, in 2006, the actual expenditure was
$289,116 which was $29,425 less than budgeted.
Our meeting with the Finance Director provided us with a clear overview of the present and proposed
finances for the Fire Department.
RESERVES
Reserves are monies set aside over a period of years for the replacement of items which have a
defining life cycle. Life cycle costs are incurred over the life span of an asset. The budgeting method
used to budget for these costs is called the “sinking fund method.” This method means money, on an
annual basis, will be set aside and invested to cover these costs.
Fire trucks (fleet) fall into this category, and have historically been replaced on a fifteen and five year
basis. This means, a truck is in full service (front line) for fifteen years and then put into reserve for
another five years only to be used when a “front line” truck is out of service. This is a general rule of
thumb used industry wide. Many rural departments, due to their lower call volumes, will use the truck in
front line service for the whole twenty years and some even beyond.
Fire stations also have a “life cycle” which, according to industry standards, is approximately 50 years.
Many diverse items in the fire service also have life cycles. For example, bunker gear (fire protective
clothing), air bottles for self contained breathing apparatus (SCBA), certain rescue equipment, etc. all
carry large costs for replacement. A large fire including hazardous materials could render protective fire
gear unusable and would have to be replaced. The fire department must be ready for such
contingencies.
While the annual Operating Budget is a sort of “wish list” of known and unknown expenditures for the
coming operating year, it’s the Reserve Budget that shows how a municipality is expecting to fund and
support its fire department. In the circumstances of Bayham Fire Department’s Reserve Budget, our
view is this Municipality is supportive financially of their Fire Department. Monies have been set aside
for the replacement of major fire apparatus, communication equipment, training, building and
remuneration. While some may argue that the monies are not enough (we do hear this often with
others) it is still important to see that these issues have been brought forward and are being addressed.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 5 – Finance
CAPITAL BUDGET
Our review of the Capital Budget is also positive. Within this budget area, important matters such as
support equipment (nozzles, extrication equipment, fire hose, etc.) are being addressed.
ORGANIZATION STRUCTURE AND STAFFING
The present organizational structure of this Fire Department is similar to other fire services in North
America. The Fire Chief is appointed by Council through by-law, and has his duties outlined in the
Establishing and Regulating By-law. As mentioned previously herein, next in line of authority are the
two Station Chiefs (Port Burwell and Straffordville). The attached Appendix “C” illustrates how the
present Fire Department is organized. Each Fire Station has a Station Chief, Captains, Training Officer
and complement of firefighters.
Our review did not see anything unusual or much different from that of other Fire Departments in our
comparison group. This group averaged approximately 2 fire stations each and approximately the
same overall number of firefighters.
CONCLUSIONS
This section of the report looked into the finances, structure, and operational matters of the fire service.
It is always difficult for non-fire managers to wonder about the expense of having an emergency
service. What can be done to reduce costs? Other areas of municipal management can justify their
operations by showing a new sewer system, a newly resurfaced road or a new park. The fire service
can show a new fire truck or fire station and what is most often shown is a burned down building. What
can’t be shown well are the many lives touched by the quick professional actions of the firefighters. The
Bayham Fire Department’s annual operating budget has been reasonably consistent for the reporting
years we viewed. Bayham reports that the operating expenses for the Fire Department account for
approximately 8% of the Municipality’s total expenses. This is commendable in light of escalating costs
and rapidly increasing emergency calls.
In attempting to bring in comparison numbers and illustrate what is happening across the fire spectrum,
one must keep in mind the dissimilarities between communities. An aging population will put greater
demands on emergency medical services than will a younger demographic. Older buildings will be the
cause of more frequent and serious fires. Industrial sites used to be, at one time, the leading fire risk,
but these areas are not nearly as prevalent as once were so that risk has diminished. High density, low
rental housing will itself present difficult obstacles.
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Section 5 – Finance
Recent changes to health and safety regulations governing how SCBA air bottles are refilled will most
certainly increase costs in this just one area of operational budgets. An ever growing issue which
affects all municipal budgets is the unfunded WSIB cost for firefighter related injury and death due to
occupational disease. Municipalities should be concerned about this issue.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 6
Section 6 – Fire Prevention
Section6 FIRE PREVENTION
FIRE PREVENTION AND FIRE SAFETY EDUCATION
Fire prevention and fire safety education are, without doubt, the best fronts in the battle against fires
and fire casualties. There are innumerable fire prevention and educational programs available to teach
the public on fire safety. The OFM’s fire safety council has been active for many years spearheading
better fire safety information avenues to the public. The National Fire Protection Association (NFPA) is
a world leader in fire prevention tools for the fire service and the public.
The OFM “Fire Prevention Effectiveness Model” (Chart 10) illustrates the recommended approach to
fire prevention in a municipality.
Chart 13 – Fire Prevention Effectiveness Model
SCOPE
The scope of fire prevention travels from education to fire and building codes (which includes
inspections), to code violation prosecution. The FPPA sets out the minimum criteria for meeting
community wide fire prevention set of programs. Smoke alarm initiatives, fire safety educational
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 6 – Fire Prevention
programs, and complaint investigations are expected to form the basis of a fire prevention program.
The OFM assesses fire prevention activities within each municipality through a survey process. The
following is excerpted from such a survey:
The Municipal Fire Protection Information Survey (MFPIS) is intended to measure a municipality's
status with respect to the compliance with clause 2 (1)( a) of the Fire Protection and Prevention
Act, 1997 (FPPA) –
“Every municipality shall establish a program in the municipality which must include public
education with respect to fire safety and certain components of fire prevention.”
The Office of the Fire Marshal (OFM) has determined the minimum criteria that must be provided
by a municipality in order to be determined to comply with the FPPA:
•a smoke alarm program with home escape planning
•a simplified risk assessment
•distribution of fire safety education materials
•perform home inspections upon request or complaint from the public.
FIRE PREVENTION INSPECTIONS
The Bayham Fire Prevention currently conducts Fire Safety Inspections on a complaint, request, or
post incident evaluation basis. Each Fire Station has a Fire Prevention Officer whose main function is to
undertake public education initiatives as set out by the Office of the Fire Marshal. The OFM has
recommended, in the past, that a more pro-active fire inspection program be undertaken.
For smaller communities, this can be a considerable undertaking to accomplish. We did not undertake
a study specifically to determine if there is sufficient workload to justify the appointment of a full-time fire
inspector. A Fire Prevention Officer is, by the very nature of the job, a law enforcement officer. His/her
duty is the enforcement of the Ontario Fire Code. This can and does result in the laying of charges for
violations under the Fire Code. Not many firefighters are inclined to be law enforcement officers
because of this very reason.
The present situation with the job description for the Fire Chief seems occupy most of his day. In-
service fire inspections, where the firefighters do minimal fire code determinations, has mixed results at
best. The next section will provide some other option for consideration.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 6 – Fire Prevention
Alternative Fire Prevention Program
There is another delivery system that we have personally introduced in past fire prevention operations,
and have found it very cost effective. This program is known as “Self Inspection.” In simple terms, each
business would be required to inspect its premises on an annual schedule as approved by the fire
department. The business would be provided with a simplified inspection form and basic instructions to
follow. This information would be returned to the fire department for analysis and recording. The fire
department, we suggest, would randomly select a control group of such businesses for follow-up by the
fire department. The purpose is to ensure the owner/operators are following the guidelines as set out
by the fire department. This program is mostly a clerical function with the exception of the actual
inspection, and can be a most effective fire prevention program.
Should this program be considered for implementation, be aware that it may take a few years to have it
fully functional. This time may be required to “educate” building owners on how to conduct a
satisfactory inspection. Also, be aware that this program can only succeed if the municipality ensures
continuous management of the program and makes themselves available for the inevitable questions
from the building owners. It is not our position that this program is a total replacement for inspections
conducted by trained personnel. It can be a valuable additional tool in fire prevention work.
It is our information that the OFM’s view is that a comprehensive inspection be undertaken prior to
introducing this Self-Inspection Program so that all buildings would be brought up to code, so as to
establish bench marks for the Self-Inspection Program. We are of the view that this approach may very
well discourage fire departments from taking this new approach because they don’t have the personnel
or extensive expertise to begin with. We recommend this program for all fire departments. It is a very
efficient low cost way of addressing fire code issues.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 7 – Other Emergency Services
Section7 OTHER EMERGENCY SERVICES
We are all aware that most fire services respond to all types of emergencies other than fires. The scope
of these non-fire emergency responses includes threats to life and property such as; motor vehicle
accidents (victim extrication), rescue (water based, shore based, high angle, confined space, etc.),
medical, hazardous materials incidents, etc. These services are essential to a municipality for the
protection of its citizens. No other public sector emergency service responds to such a diverse and
complicated variety of public needs.
MEDICAL EMERGENCIES
Earlier, in this report, we covered most aspects of medical emergency responses, and provided
statistical information on a yearly basis of call outs. A great many fire services are involved in providing
this service. The fire services involved do so under a set of criteria such as chest pains, cardiac arrest,
motor vehicle accidents, etc. Some fire services do not participate at all in emergency medical calls
except in extreme situations, such as when there is no ambulance available for a specific time. For
example, the Town of Niagara-on-the-Lake has had, for many years, a 10 minute delay criteria for the
ambulance before fire is dispatched. There is no doubt that medical calls are the prime driver in
emergency responses and resulting operational costs.
There are several models from which to choose. For example, no medical response, minimal level of
response with first aid and cardio pulmonary resuscitation (CPR) capabilities, delayed response based
upon ambulance availability, or full response including defibrillator service. As one would expect, with
each increased level of response comes greater costs. The “no medical response” is the least costly
while the defibrillator response, with no time delay, is the costliest.
We do recommend that the Municipality continue to review medical calls to ensure to ensure
appropriate use of their fire resources is being done.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 7 – Other Emergency Services
HAZARDOUS MATERIALS INCIDENTS
This is a service which can run from rudimentary (awareness level), all the way to mitigating and
removing/disposing toxic materials. Bayham Fire Department operates at the “awareness level.” Few
fire services get involved in hazardous materials incidents beyond the awareness level. They do this for
reasons such as the extraordinary amount of training required and the costly equipment needed, vs.
the low number of incidents. The spate of “white powder” incidents in the United States just after 9/11
worried municipalities to the point where specialized haz-mat teams were set up. In the Niagara
Region, a group of firefighters, police and EMS personnel were specially trained and equipped to
respond to hazardous materials incidents.
The City of Vaughan has, for many years, trained its firefighters to the “operations level,” and supplied
their services to neighbouring communities. In past years, some municipalities have partnered with the
private sector to deal with haz-mat emergencies. Two examples of municipalities teaming with private
industry to assist in dealing with hazardous materials incidents are Niagara Falls and the Town of
Lincoln. Each instituted programs where firefighters were trained to the awareness level with some
trained to the operational level. Once identified as a hazardous material, the contracted company would
be called to mitigate and remove the product.
This approach can save municipalities the high cost of training and equipment needed to do the job
properly. The cost of cleaning up after a haz-mat incident is then billed to the carrier so the cleanup
company can recoup their costs as well as the fire service.
TECHNICAL RESCUE SERVICES
The Bayham Fire Department also provides the following technical rescue services:
•auto extrication (rescue of persons trapped in vehicles),
•land based ice/water rescue with minimal water entry,
•high angle rope rescue
•confined space rescue.
Each of these services comes with the usual costs for equipment, training, and the resulting responses
to the emergency. These types of emergencies are also heavily governed by provincial regulations.
Specific training, instructions (operating procedures) and equipment in proper working condition are
musts for ensuring adherence to these regulations.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 7 – Other Emergency Services
Bayham uses “Specialty Teams” to handle auto extrication, rope rescue, and ice/water rescue. Within
these technical rescue services some issues have been brought to our attention through the Master
Fire Plan process. The first issue to deal with herein is the concept of “Specialty Teams.” The other we
will discuss is “water/ice rescue.”
SPECIALTY TEAMS
The Specialty Teams system employed by Bayham is to have a certain number of firefighters
specifically trained in any one of the three mentioned disciplines (extrication, rope rescue, and ice/water
rescue). I have had some experience with “specialty teams” of sorts. In Niagara Falls, for what we
called “gorge rescues,” certain individuals on each shift would agree to be lowered into the Niagara
Gorge to perform rescue work. There were times that this approach caused problems when we did not
have enough available personnel to perform the rescue without the movement of many trucks and
personnel.
During our discussions with the Station Officers and firefighters, there were concerns noted about this
aspect. Particular concern was voiced re: water/ice rescue. Training was a worry with such issues as
long lag times between training sessions, etc. Firefighters voiced concerns that they weren’t told in
time, or locations were changed, or other issues. Operationally, it is my opinion that the “specialty
teams” concept is not the best way to address these important operational functions.
What if a major accident occurred and there were no trained personnel on heavy rescue equipment to
extricate a victim from a vehicle? We could site other examples but one can always imagine the worst.
Further to this, what if the non-trained people took over the equipment and things went awry? An
investigation by the Ministry of Labour is a most likely outcome with consequences to follow.
RECOMMENDATION
Change from the Specialty Team concept and have every firefighter and officer trained in these
operational areas. We were told the impact on the budget would be slight.
WATER/ICE RESCUE
This is the most contentious of all the issues we were asked to address. Water/Ice Rescue is one of the
specialty team issues, but is also a long “smoldering” one at the Port Burwell Station where this
operation was run from. For many years, the Port Burwell Station had a boat for water based rescues.
This particular form of water rescue was ended in 2006. A number of reports were presented to Council
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 7 – Other Emergency Services
by staff outlining the various issues relating to Water/Ice Rescue using boats. We reviewed information
provided to us relating to Ministry of Labour and Section 21 Committee findings. The Section 21
Committee is made up of firefighters and fire officers along with Ministry of Labour personnel. Their
goal is to make fire operations safer for firefighters. When this committee sends out a “guideline” to fire
departments, it is meant to be followed or suffer the consequences should something go awry and a
firefighter become injured or worse.
What is the history of calls for water rescue? Municipal information given to us also provided a chart
which shows the history of water rescues from 1998 to 2004 of water rescues. We have reproduced it
here as Chart 14:
Chart 14 – Historic Water Rescue Incidents
C h ar t 14 - His t o r ic Wat e r Re s cu e In cid e n t s
0
1
2
3
4
5
1998 1999 2000 2001 2002 2003 2004 2005 2006
Year
Land Rescue
Water Rescue
We were also provided response records for the years 2000 to 2009. From these records we see there
has been one more water type rescue since what the previous Chart 14 shows.
The Niagara Falls Fire Department has been providing water based rescue for well over 35 years from
its Chippawa Fire Station. I was the Fire Chief when we upgraded the previous 2 aluminum 12’ boats to
modern certified water rescue craft (2). Each boat has twin motors to propel them, and there are two
boats in case one gets into trouble and it needs to be rescued. The Niagara River is one of the most
dangerous rivers in the world. Its tributary, the Welland River, can also be a dangerous waterway. Each
year there are numerous incidents of boats and swimmers in distress needing to be rescued. I am also
Vice-Chair of the local St. John Ambulance, and we also provide a boat based water rescue service--
but only to the Welland River area noted for boaters and swimmers. From experience, I know the
difficulty and costs associated with providing this form of water rescue - cost, not only in dollars, but
also in time for training and administration.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 7 – Other Emergency Services
For the purposes of this report, we spoke with a senior officer with the Niagara Falls Fire Department’s
water rescue operation. He has confirmed for me much of the information contained in the various
reports to Bayham’s Council reflect fairly well the process they follow.
During our interviews with all Port Burwell firefighters and officers, it was apparent to us that there are 3
groups of opinions. The group satisfied with the Fire Chief’s decision and that of Council, the group that
was begrudgingly acceptable to this decision and the final group opposed. The legal opinion expressed
in the report to Council appears to be well stated. The Fire Protection and Prevention Act does not
place a duty on municipalities to conduct water rescues. For a municipality to do or not is purely within
their discretion.
For many of the arguments presented to Council by the Fire Chief, with which I can agree, I also ask if
many are not also applicable to having any water entry at all? Lake Erie can be a very dangerous
place, and all along its shore are areas where waves, rip tides, and the combination have taken many
lives over the years. If the Council were to only endorse shore based rescue with no water entry, the
same number of historic emergencies would not change nor would the trend.
After lengthy discussions with the current Fire Chief, we are of the opinion that a program of controlled
water entry for firefighters would be an asset for the Municipality. As new guidelines which have better
defined water entry have been introduced early in 2010 and, the Chief’s expertise in water rescue is
evident, we have no issue with continuing with a the current program so long as the required training
and equipment are provided.
RECOMMENDATION
1)It is my recommendation that Council continues with its previous position and not
endorse boat based water rescue. However, we further recommend, under the
guidance of the current Fire Chief, that the necessary training and equipment are
provided for limited water entry rescues.
2)That the Fire Department discontinues its practice of “Specialty Teams” and
replaces it with a Department wide program of having all firefighters and officers
trained in and respond to auto extrication, rope rescue and water rescue.
CONCLUSION
As stated, medical emergencies and motor vehicle collisions are leading the demand on the fire
service. Bayham’s situation is similar to many other municipalities with similar response criteria.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 5
Section 8 – Suppression Operations
Section8 SUPPRESSION OPERATIONS
The existing fire suppression resources operate out of two fire stations. These present fire stations are
fairly well located to the majority of the population they serve. Bayham’s fairly large land mass, with its
mix of urban and rural areas, means there are pockets where speedy response to remote emergencies
means longer travel times. This is a simple statement of fact. No-one citizen should expect nor receive
the exact same service as every other citizen. This is just not operationally or affordably possible.
However, fire services can do much to minimize deficiencies, such as outreach fire safety programs to
rural areas. This section will provide some insight into Bayham’s fire and emergency resources and
capabilities.
FIRE APPARATUS
The Fire Suppression Division operates out of two fire stations in areas which are fairly well located to
provide speedy emergency responses to their main population concentrations. Each fire station has an
assortment of fire trucks and emergency equipment. The following Table vi lists the present fire trucks,
their location and more importantly, their replacement year, along with other information.
The following table (next page) shows the various major fire apparatus and support equipment and
where they are assigned.
Table i
Station Type Year Capacity Pump Size Style
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 8 – Suppression Operations
Port Burwell Pumpe
r
200
5 1000
gallon
s
1250
gals/minute
4 door
Port Burwell Tanker 200
0 1500
gallon
s
1050
gals/minute
2 door
Port Burwell Rescue 199
7
n/a n/a 2 door
Station Type Year Capacity Pump Size Style
Straffordvill
e
Pumpe
r
200
9
2000 gallons 1050 gal/minute 4 door
Straffordvill
e
Tanker 200
3
1500 gallons 625 gal/minute 2 door
The Fire Department does not have any support vehicles. The procedure for truck maintenance is
Annual inspections and maintenance as per MTO legislation. The Department utilizes a local truck
dealer for chassis maintenance and repair. The Municipality does not enter into a formalized contract
for repairs. The Town of Tillsonburg’s certified pump technician conducts annual pump flow testing and
repairs.
MAJOR EQUIPMENT
PORT BURWELL
High pressure air bags (Hurst)
Manual Auto Extrication Too
Portable Generator – 3500 W
Water/Ice Rescue Immersion suits
Portable water pump
STRAFFORDVILLE
Heavy hydraulics (Hurst) Jaws, Cutters, Paladin Combi-tool, stabilization kit
High Pressure Air Bags (Hurst)
Portable Generator – 3000W
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 2
Section 8 – Suppression Operations
Water/Ice Rescue Immersion suits
Portable water pump
This mix of fire trucks: pumpers/tankers/rescue vehicles and major equipment appears to serve the
community well. We did not record any concerns from our interviews with the Fire Officers or
Firefighters regarding equipment.
RECOMMENDATION
We did not see any Council Policy regarding the purchase and replacement of major fire apparatus.
We did see the budget details for future vehicle replacement. We do recommend that Council adopt a
policy for the overall maintenance and replacement of major fire apparatus which is consistent with
accepted industry standards. We recommend that NFPA 1901: Standard for Automotive Fire
Apparatus and NFPA 1911: Standard for the Inspection, Maintenance, Testing, and Retirement of In-
Service Automotive Fire Apparatus and any other similar acceptable standard be referenced to ensure
industry standards for the purchase and replacement of these important fire apparatus is being met.
FIRE STATIONS
A fire station is the fire emergency operations center for a given fire district or specific area of a
municipality. Each fire station typically houses fire apparatus and emergency equipment needed for the
various fires and other emergency calls in its response area. Bayham has two fire stations – Port
Burwell and Straffordville.
STRAFFORDVILLE FIRE STATION
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 8 – Suppression Operations
The Straffordville Fire Station (pictured above) is located at 55764 Third Street, Straffordville. It was
built in 1998. Our tour of this station showed to us that it is in very good condition and has ample room
for fire apparatus, equipment, offices, and training facilities.
The main response routes from this station are Plank Road, which runs on a north easterly/south
westerly direction and Heritage Line which runs in an east/west direction.
PORT BURWELL FIRE STATION
The Port Burwell Fire Station (pictured above) is located at 20 Pitt Street, Port Burwell. It is
approximately 40 to 50 years old. This station is in a good location to serve the Port Burwell area, but is
in poor condition and must be replaced. Presently, the Municipality has a committee established to
recommend replacing and relocating this station. We’re sure there has been enough reasons given for
this undertaking, most of which we can agree.
During our tours of Bayham and the Port Burwell area in particular, we were shown two possible sites
to place a new fire station. The first site is close to the present fire station and it owned by the
Municipality. It is located at 31 Elizabeth Street, and was the former service yard for this area (picture
below). Information provided by the Municipality is that the lot size is 132 feet wide by 165 feet deep.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Section 8 – Suppression Operations
The other site that we were shown is located at 55461 Nova Scotia Line and is presently used as a
sports field (picture below).
The accompanying Map 5 in Appendix “A” shows the relative proximity of each proposed site to the
main residential and business areas of Port Burwell.
A key consideration for locating a fire station in a volunteer system is to ensure it is close to where
firefighters live. Volunteer firefighters must be in close proximity to their fire station or their “assembly
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 5
Section 8 – Suppression Operations
times” may be unacceptably high. Continuation of a site close to Port Burwell should ensure a
continuous flow of personnel to the fire service in this area.
“*Assembly time is that component of the fire time continuum (overall response time) which
defines the amount of time it takes for firefighters to respond to the fire station to get the needed
emergency equipment to respond to the address.”
The OFM Public Fire Safety Guideline, “PFSG 04-87-13 - Fire Station Location” states:
“Fire stations should be situated to achieve the most effective and safe emergency responses.”
This new fire station should be constructed of sufficient size to accommodate the necessary
administration offices, training room, support rooms and truck bays. It should also include its own
emergency electrical generation unit. (See Appendix C - Sample Station Design)
Most likely, two, double length truck bays with accommodations suitable for offices, storage, proper
washroom and shower facilities, utility area, and maintenance area with a minimum building size of
approximately 5,000 square feet or more in size would meet today’s and future needs. There must also
be sufficient yard space for parking volunteer’s personal vehicles, driveway, property setbacks, truck
ramp and any other outside space required. This total area may make the Elizabeth site unacceptable.
Also, the building should be constructed to accommodate future expansion if needed (usual method is
to have removable walls along the truck bay). This is a recognized practice, when building fire stations
in areas, where future development is not realized for many years into the future. (See Appendix C -
Sample Station Design)
Fire stations are an integral component to the fire service delivery system. Without fire stations, the
service could not function. Essential as the emergency operation needs of a fire station in a volunteer
fire service system such as Bayham’s, so is the social aspect. Recruiting and retaining people to be
volunteer firefighters is a daily issue; fire stations with the added configuration to provide volunteers with
a social aspect help to recruit firefighters.
FIRE STATIONS – CONCLUSION
Bayham’s two fire stations appear to be well located to respond quickly to their respective service
areas. The Straffordville Fire Station is an up to date modern facility with ample room to accommodate
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 6
Section 8 – Suppression Operations
firefighter and Fire Department needs. It has good access to the main north/south and east/west
arteries, and is centrally located to the densest populated part of this area.
Port Burwell’s Fire Station is also well located to service this area’s heaviest population concentration.
However, it is old, outdated and in need of replacement. The Municipality has struck a committee with
the intent of addressing this situation. We were shown two possible locations for a new station to be
erected. The Elizabeth site might be limited in size depending on the final layout chosen for the new
building. We have been told that either location is relatively close to where the majority of firefighters
live. The activities related to the operations of a fire station might be disruptive to the neighbours should
the Elizabeth site be chosen.
OPERATIONS
The “activities” of a fire department can be separated into two components – emergency and non-
emergency operations. The non-emergency activities prepare the fire department for responding to
emergencies.
NON-EMERGENCY OPERATIONS
The non-emergency operations are, in essence, the routine day to day issues such as office
management, training, maintenance, fire prevention matters, firefighter issues and so on. Our overall
assessment of the management, operations, and the commitment to providing an excellent service to
the citizens of the Municipality of Bayham is positive. Management and officers are very committed to
providing excellent service to this community.
Our review of the department’s SOGs (Standard Operating Guidelines) revealed the commitment to
fire fighter safety and conformity to industry standards. There can be seemingly no end to the myriad
subjects needing to be covered. We did not see that there are many SOGs. The format, while clear and
concise, does not (as many do) turn to being no more than a training manual, and is somewhat
muddled in layout and design. The next Chief should establish SOGs as a priority and set them out in a
concise, standard structure. We recommend they be set out in two parts – Administrative and
Operational. We also suggest there should be more operational SOGs pertaining to such things as
incident command (taking command, transferring command, etc.), structure fires (hydrant/non-hydrant
responses), auto extrication, water rescue and medical calls.
We also recommend that each SOG be accompanied by this statement of disclaimer:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 7
Section 8 – Suppression Operations
“This SOG is not expected to substitute for the good judgment and experience of an officer
under unusual circumstances.”
EMERGENCY OPERATIONS
This report has previously provided information regarding the various “components” of fire emergency
operations. From overall statistical information to individual emergency response data, the statistics
have shown general increases in call volumes. Vehicle accidents and medical calls lead the way in
these escalating numbers. Increasing call volumes for any fire department should be a concern as the
cost associated with them also rises.
Our meetings with the Chief, the Station Officers and firefighters did not reveal any specific issue with
individual emergency calls. The “Achilles heal” of all volunteer fire services is when the alarm sounds,
no-one really knows how many firefighters will respond in a timely fashion to deal with the emergency.
All emergencies require firefighters to respond to the station, take the appropriate fire truck to the
emergency, and work to mitigate the situation. This is especially so of structural fire calls, as these
emergencies generally require the largest number of firefighters to arrest the situation. The OFM set out
a guideline for all fire departments to follow many years ago when responding to structural fires in areas
serviced by a pressurized water system (fire hydrant equipped). Simply put, this guideline requires a
minimum of 10 firefighters in 10 minutes of receipt of the call, 90% of the time. The following OFM
diagram (Fireground Staffing Options) illustrates the various tasks associated with this “10 in 10”
guideline:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 8
Section 8 – Suppression Operations
The Fire Chief sent a report to Council (P2006-012) in October 5, 2006, regarding Fire Department
responses. The following information is copied from that report:
Function Staff
Command 1
Pump operator 1
Search & rescue or limited firefighting
•one of these firefighters also makes hydrant connection where applicable
•depending on the circumstances, additional resources will be required to
secure and maintain a transported or static water supply
2
Back up protection – inside
•confine and/or contain fire that impacts on safety of rescue/trapped
persons
2
Outside – RIT team ²
•exposure protection/laddering for 2nd point of egress ³
2
1 ventilation team
•raise ladder & use equipment
2
Total:10
[1] Flashover is a condition that occurs as materials first ignited progress to a state where all
combustibles in a room or area are simultaneously engulfed in fire.
[2] RIT is a “rapid intervention team” i.e. firefighters available to provide back-up protection to
other firefighters in places of danger.
[3] Appropriate operations carried out, based on situation. Consistent with Ministry of Labor,
Health and Safety Guidelines for the Ontario Fire Service, these firefighters (RIT) cannot be
breathing air from their self-contained breathing apparatus.
This report contained the table reproduced below which shows the number of firefighters responding to
emergencies.
Time of Day
Average Time
Taken to
Dispatch FD
(M)
Average Response
Time of 1st Apparatus
on Scene (M)
Average Time
Taken to Arrive on
Scene
4 FF’s 10 FF’s
Average
Total FF on
Scene
Weekday (7
am – 7 pm)1.39 9.81 11.85 *11
Weekday (7
pm – 7 am)1.70 9.87 10.65 *13
Weekends 1.58 10.38 11.69 *13
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 9
Section 8 – Suppression Operations
This same report went on to explain the response numbers from each station. We did not have any
current information and we were told there was no unusual concern with today’s response turnouts.
FIRE UNDERWRITER’S SURVEY (FUS)
The following statement has been extracted from the FUS website:
“Fire Underwriters Survey (FUS) is a national organization administered by CGI Insurance
Business Services (formerly the IAO). FUS provides data on public fire protection for fire
insurance statistical work and underwriting on behalf of most of the member companies of the
Insurance Bureau of Canada (IBC). The other primary function of the FUS is to provide advice
to municipalities on deficiencies in their fire protection capabilities, and to make recommendation
on improvements to enable them to better deal with fire protection problems.”
The following elements of the municipal fire department operations are reviewed as part of the
survey:
•Fire apparatus design and condition and distribution
•Fire department training program
•Fire department response capabilities
•Equipment quality
•Pre-fire planning
•Record keeping
They will also review the municipality’s water supply. For rural municipalities, this means how
does the fire department supply water at a structure fire? In the early, 1990’s, the concept of
shuttling enough water to a structure fire with the same results as would be obtained from a
pressurized water system was introduced. This concept was offered to communities who could
demonstrate their ability to provide an adequate supply of water.
In their own words they explain how this works:
“The ability to demonstrate the fire department or mutual aid districts ability to perform “Tanker
Shuttle Operations” to support fire fighting operations in areas of the town or municipality where
fire hydrant service is not available or flow is limited. This operation would need to be
demonstrated in the presence of a FUS representative, and a minimum of 900 litres/min
maintained for two hours.”
Their information regarding fire apparatus is reproduced below:
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 10
Section 8 – Suppression Operations
“FUS requires fire apparatus to meet either the ULC-S515 or the NFPA 1901 Standard for
Firefighting Apparatus Construction, Equipment and Testing. The following schedule is used as
a guideline for apparatus replacement as part of the survey:
Large cities 12 – 15 yrs, with an additional 5 yrs in reserve.
Average size cities 15 yrs, with additional 5 yrs as back up, and 5 yrs in reserve
Small municipalities 20 yrs, with an additional 5 yrs second line or reserve”
The 2004 FUS survey resulted in a Class 9 rating for Straffordville, a Class 6 for structures within 5 Km
of a fire station in the hydrant areas of Port Burwell and Class 9 elsewhere. This begs the question,
what would it take and how much would it cost to have a better rating? It is our information that FUS is
considering changes to the Tanker Shuttle format. We do not have any specific information at this time,
but we’ve been told that the changes would make it even more difficult to achieve.
Bayham recently added a new fire truck to its fleet. The Pumper/Rescue at Straffordville carries 2000
gallons of water (picture below). The ability to haul adequate water to a fire is essential.
We have discussed the water supply in Bayham (Port Burwell and Vienna are on a pressurized
system) and Straffordville (well system of water supply), cisterns at various places scattered throughout
the Municipality and there are areas of open water (i.e., Otter Creek). This brings the question: should
Bayham strive for Tanker Shuttle certification?
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 11
Section 8 – Suppression Operations
A continuous flow rate of 900 litres/minute (approximately 200 imperial gallons) for 2 hours is a
considerable amount of water (108,000 litres or 23,757 imperial gallons). A 10,000 gallon cistern
(45,460 litres) would be able to supply water for less than one hour. Multiple water sources would be
required (cisterns, tankers, etc.), or else use a hydrant in the Port Burwell/Vienna area. For certification
purposes, FUS would have to agree to the chosen site. This would involve a considerable number of
firefighters and fire trucks. At today’s requirements, this is a tough challenge for a small fire service. If
FUS changes the criteria so that it is even more difficult, then it might not be possible without huge
outlays of monies for tankers and additional/larger cisterns to qualify.
This then begs the question, which will cost more – the additional insurance rate per household or the
additional taxes needed to pay for the upgrade? Another factor involved in the Tanker Shuttle
certification process is, once certified, a municipality must respond to all structure fires with the
minimum number of assets it took to be certified.
During my tenure as Fire Chief in Niagara Falls, we achieved Tanker Shuttle certification. We had a
large fleet of fire trucks and were within reasonable distance to hydrants (no closer than 5 Km to a
hydrant). What we were never able to ascertain was the per household savings. Our certification did
not cost any extra tax dollars. My opinion for Bayham is it would. The new Fire Chief should be directed
to undertake a complete inventory of the municipality’s water systems (pressurized areas, well water,
pods, streams, etc.), before a final decision is made regarding tanker pumper certification.
Also, at this time, I would not recommend certification until such time as the possible changes to the
certification process are known, costs can be computed and ratings outcome determined.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 12
Section 9 - Conclusions
Section9 CONCLUSIONS
We conclude this report with our findings and recommendations. Our overall opinion of the Bayham’s
Fire Department is quite positive. Strong leadership from the Chief and Officers, and very dedicated
firefighters, along with their commitment to the community’s well being and safety, form a strong
foundation. Strong support was evident from other Municipal Senior Staff as well as Council and the
Master Fire Plan Committee. The Municipality should be proud of their fire service and continue with
their strong support.
The rest of this section details the recommendations stemming from our review of Bayham’s Fire
Department. Each recommendation is listed in order of priority from our perspective with a
recommended time line for action.
OVERVIEW
It is important for us to say that the former Fire Chief was very accommodating throughout this process.
His leadership was evident in the manner by which he addressed the issues of concern and the overall
support he had from the firefighters, officers and Council. A Master Fire Plan process is a worthwhile
endeavour for a community to undertake. It is an evaluation of present configuration and operation.
We did not see anything of importance that would require immediate action, or that compromises
emergency response to incidents. The recommendations and suggestions we are making are more
along the lines of fine tuning.
RECOMMENDATION: Port Burwell Fire Station
We acknowledge the ongoing work being undertaken by the committee established to
seek a replacement facility for this aging facility. It is our recommendation that the new Fire
Chief be directed to bring this matter to Council for action as soon as possible.
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 1
Section 9 - Conclusions
Timeline: 6 months.
RECOMMENDATION: FIRE APPARATUS
That Council establishes a policy for the purchase, maintenance and retirement of fire
apparatus in concert with accepted industry standards such as Ontario Fire Service
Advisory Committee Guidance Notes, NFPA 1500, 1911, 1915 and the Fire Underwriter’s
Survey.
Timeline: one year
RECOMMENDATION: FIREFIGHTER RECRUITMENT – RETAINMENT
That Council direct staff to bring forward a comprehensive program for the recruitment and
retainment of firefighters. Presently, there does not appear to be any pressing problems.
However, the changing economic climate and demographics make the future uncertain. It
is better to be prepared.
It is further recommended that the present wording directing the new recruit to report to his
“fire department” be changed to “fire station”. This underscores that it is the Bayham Fire
Department with Fire Stations in Straffordville and Port Burwell.
Timeline: 2 Years
RECOMMENDATION: OFFICER QUALIFICATIONS
That the Fire Chief bring forward a proposal for Council’s consideration requiring
perspective Fire Officers be trained and qualified in Incident Command and undertake
leadership training.
Timeline: 6 months
RECOMMENDATION: SPECIALTY TEAMS
It is recommended that the concept of specialty teams be discontinued. There are present
difficulties with this practice, and it could create an embarrassing problem at an
emergency scene, if none or inadequately trained personnel are on-hand to deal with the
particular emergency.
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Section 9 - Conclusions
Timeline: 6 months – time for the new Fire Chief to review the present situation and present a
report to Council regarding changes and scheduling.
RECOMMENDATION: WATER RESCUE
The former Fire Chief presented Council with detailed information on the cost and
associated issues for not providing a boat based water rescue capability. Council was well
advised. The future may present unforeseen issues whereby Council will have to be
further advised. However, at this time, it appears to us that Council made the right
decision.
Timeline: 0 months
RECOMMENDATION: SUGGESTED OPERATING PROCEDURES
The new Fire Chief be directed to continue producing SOGs with a focus on emergency
operations. They should be arranged to reflect administrative issues and operational ones.
The Fire Chief is advised to include the disclaimer provided herein or a similar statement
as advised by legal counsel.
Timeline: 2 months
RECOMMENDATION: TANKER SHUTTLE CERTIFICATION
We have seen the Municipality’s commitment to providing quality fire apparatus and
support equipment. The addition of the new Pumper/Rescue with increased water hauling
capacity is an excellent case in point. There are presently some uncertainties surrounding
the certification process, and the potential savings to home owners and businesses that
cloud this issue. The new Fire Chief should be directed to bring forward a report to Council
updating the information previously presented.
Timeline: When new information is available – whichever comes first.
RECOMMENDATION: COUNCIL OVERSIGHT
As the governing board, the Council has the responsibility that its citizens are protected
and their tax dollars well spent. We are not suggesting it is otherwise. We are saying
however there are certain “drivers” in the fire service which when left to themselves result
in higher and higher costs for service. Incumbent in this are medical calls. Our personal
experience suggests that medical calls such as “difficulty breathing” are not life
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 3
Section 9 - Conclusions
threatening, and is the number 1 reason for escalating medical calls. The Council should
be given the facts and if indicated, direct staff to make the appropriate changes.
Timeline: ongoing.
RECOMMENDATION: FIRE PREVENTION SELF INSPECTION PROGRAM
It has been noted previously by the OFM that the Municipality should have a program of
routine inspections. There is a cost to this that might be preventing such a move. A new
Fire Chief and different duties might be sufficient to provide this worthwhile service.
However, there is a very cost affordable way to achieve some of the same results as
would a physical inspection by a fire inspector. Self inspection is an option the Fire
Department should investigate and institute.
Timeline: bring back a report to Council by March 2011
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates 4
Appendix A
APPENDIX A
Rural Water Sources
Appendix B MAPS
APPENDIX B
Map 1 – Automatic Aid Coverage Area
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Appendix B MAPS
Map 2 – Port Burwell – Hydrant Locations
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Appendix B MAPS
Map 3 – Vienna – Hydrant Locations
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Appendix B MAPS
Map 4 – Port Burwell to Straffordville
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Appendix B MAPS
Map 5 – Possible Fire Station Sites
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Appendix B MAPS
APPENDIX C
Sample Station Design
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Appendix C
APPENDIX C
Bayham Fire Department Organization Chart
FIRE CHIEF
(1)
PORT BURWELL
Station Chief
(1)
STRAFFORDVILLE
Station Chief
(1)
CAPTAINS (3)
Training Officer (1)
Occupational Health & Safety Representative (1)
Fire Prevention Officer (1)
Firefighters (11)
CAPTAINS (3)
Training Officer (1)
Occupational Health & Safety Representative (1)
Fire Prevention Officer (1)
Firefighters (12)
Auxiliary Members (<=5)
BIBLIOGRAPHY
BIBLIOGRAPHY
Various Standards and Agreements
Fire Protection and Prevention Act
Ontario Fire Safety and Protection Model
Office of the Fire Marshal “Comprehensive Fire Safety Effectiveness Model”
Office of the Fire Marshal “Simplified Risk Assessments – July 27, 2006”,
Automatic Aid Agreement South West Oxford Township
Office of the Fire Marshal Guideline “Volunteer Fire Service Personnel Recruitment and
Retention”
Office of the Fire Marshal “The Volunteer Recruitment and Retention Resource Book”
NFPA 1500 Standard on Fire Department Occupational Safety and Health Program
NFPA 1911 Standard for the Inspection, Maintenance, Testing, and Retirement of In-Service
Automotive Fire Apparatus
NFPA 1915 Standard for Fire Apparatus Preventative Maintenance Program
Essentials of Fire Fighting Fourth Edition
Public Fire Safety Guideline, PFSG 04-87-13 - Fire Station Location
The Following Staff Reports to Council
SUBJECT: Mutual Aid Agreement with SWOX NUMBER: P2005-006
SUBJECT: Fire Underwriters Survey NUMBER: P2005-009
SUBJECT: Fire Department/ CEMP Annual Report NUMBER: P2006-004
SUBJECT: Open Air Burning By-law Amendment NUMBER: P2006-011
SUBJECT: Fire Department Response NUMBER: P2006-012
SUBJECT: Fire Department Succession Planning NUMBER: P2006-013
SUBJECT: Water Based Vessel Rescue NUMBER: P2006-015
SUBJECT: Water and Ice Rescue Services NUMBER: P2006-016
SUBJECT: Water and Ice Rescue Services NUMBER: P2006-016
SUBJECT: Medical Response Pilot NUMBER: P2006-019
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates I
BIBLIOGRAPHY
Vessel Based Water Rescue Information
SUBJECT: Emergency Communications Infrastructure NUMBER: P2006-023
SUBJECT: Emergency Communications Infrastructure NUMBER: P2006-023
SUBJECT: Water and Ice Rescue Services NUMBER: P2006-024
SUBJECT: Fire Department Protective Clothing Replacement NUMBER: P2006-032
SUBJECT: Fire Department/ CEMP/By-Law 3rd Qtr. Report NUMBER: P2007-001
SUBJECT: Fire Department Dispatch Services NUMBER: P2007-007
SUBJECT: Fire Department Dispatch Services NUMBER: P2007-009
SUBJECT: Sale of Fire Department Boats NUMBER: P2007-019
SUBJECT: Sale of Fire Department Boats NUMBER: P2007-019
SUBJECT: Fire Department Response to Structure Fires NUMBER: P2007-024
SUBJECT: Fire Department 4th Qtr. / Annual Report NUMBER: P2008-001
SUBJECT: Vessel (Boat) Based Rescue Services NUMBER: P2008-004
SUBJECT: Edison Drive Fire Protection Resources NUMBER: P2008-018
SUBJECT: Emergency Response Program Amendments NUMBER: P2009-005
SUBJECT: Fire Department Annual Report - 2008 NUMBER: P2009-002
Various SOGs
SCBA Air Cylinder Refilling BY-LAW NO. 2007-044
Subject: WEARING OF APPROPRIATE LEVEL OF PROTECTIVE CLOTHING
Subject: WEARING SELF-CONTAINED BREATHING APPARATUS
Quality Air Breathing Program Subject: CARE AND CLEANING OF PROTECTIVE
CLOTHING
Municipal By-laws
A By-law for the Establishment of the Municipality of Bayham Fire Department
By-law No. 2005-108
A By-law to Amend By-law 2002-03, as Amended
MUNICIPALITY OF BAYHAM MASTER FIRE PLAN Peter Corfield & Associates II
BIBLIOGRAPHY
Being a By-law to Appoint Municipal Officers and Employees for the Municipality of
Bayham By-law No. 2000-74 a By-law to Adopt a Fire Service Health & Safety Policy for
the Municipality of Bayham Fire Department
Various and Sundry Other Documents of Interest
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