ADMINISTRATIVE REPORT
Date: July 14, 1995
TO: Vancouver City Council
FROM: Director, Risk and Emergency Management Division for Emergency
Management Committee (City Manager, Chief Constable, and
General Managers of Fire and Rescue Services, Engineering
Services, and Parks and Recreation) and General Manager,
Corporate Services
SUBJECT: Development of the Emergency Operations and Communications
Centre
RECOMMENDATIONS
A. THAT Council authorize the planning for and construction of an
Emergency Operations and Communications Centre (EOCC), as set
out in this report, at a cost of $14 million, source of
funding to be as outlined in Recommendation G to J, following.
B. THAT Council authorize participation of other agencies in the
EOCC, at no additonal cost to the City on the basis of each
agency bearing a proportionate share of the total building and
common facilities costs according to their space requirements
and system utilization.
C. THAT participating agencies pay the costs of any independent
communications facilities they may require.
D. THAT the City Manager be authorized to negotiate participation
agreements with other agencies, subject to report back to
Council for approval.
E. THAT Council instruct the City Manager to prepare and report
on a long term plan for the City communications system, with a
view to including funding for elements of the plan in the 1996
Capital Plan.
F. THAT Council authorize the City Manager to award consulting
contracts for detailed design of the EOCC and for development
of the long term communications plan up to $200,000 per
contract during the Council summer break.
G. THAT Infrastructure Program funding approved by the Federal
and Provincial governments, totalling $6,666,000 be applied to
the design and development of the City portion of the EOCC,
land costs excluded.
H. THAT the Director of Legal Services bring forward a bylaw to
vary the purpose of $2,360,000 of debenture borrowing
authority so that funding approved in the 1994-1996 Capital
Plan to replace Firehall 18 may be applied to the EOCC.
I. THAT Council apply the fire insurance proceeds from the
Sterling Shipyard fire, in an estimated amount of $2,500,000,
to the EOCC.
J. THAT Council authorize the allocation of $2,474,000 from City
infrastructure funds approved in the 1987-1990 Capital Plan to
the EOCC.
CITY MANAGER'S COMMENTS
The City Manager RECOMMENDS approval of the above recommendations,
noting that they are fully supported the Emergency Management Committee
and the General Manager of Corporate Services.
COUNCIL POLICY
There is no specific Council policy which mandates the construction
of the EOCC. However, Council has consistently supported effective
emergency communications, both for daily operations and for
response to a major emergency. Emergency Planning was previously
identified as a corporate priority, and is reflected in the City
Objectives approved by Council.
Where Council wishes to vary the purpose of funds borrowed by
plebiscite, the Charter provides authority to do so by a bylaw
approved by two thirds of Council.
The City Manager is authorized to award consulting contracts to a
maximum level of $30,000.
SUMMARY
The City's emergency services' communications systems, like others
throughout the region, are outdated. As a result inter-communication
among and within response agencies is limited. Our ability to respond
effectively to any major disaster will be compromised by the weaknesses
in our present communications system. Much of the system will require
replacement in the next few years.
The City is building a new Emergency Operations and Communications
Centre (EOCC) which will centrally locate emergency dispatch and 911
systems as well as the City's Emergency Operations Centre in a
seismically secure building. It makes sense to develop a strategy
to upgrade present communications systems in conjunction with the design
of the new facility.
The City and others would benefit significantly from a broader multi-
agency participation in the EOCC. Co-location offers economies of scale
and enhances broader coordination of response for daily and major
emergencies. Communication upgrades could be developed and funded
across a broader base, ensuring both inter-operability and cost-
effectiveness.
This report recommends approval of funding sources to fund the City's
component of the EOCC and supplement the federal/provincial
Infrastructure Program funding already received. It also authorizes
negotiation of participation in the EOCC by other agencies, at no
additional City cost and directs the development of a long term
communications plan in conjunction with the EOCC project.
PURPOSE
This report identifies the essential nature of City emergency
communications systems, both for daily operations and for use in a major
emergency. It describes the proposed EOCC and the advantages which will
flow to the City from its construction. It notes the benefit of multi-
agency participation in the proposed centre and recommends that the City
seek the involvement of other agencies in its development and operation.
The report identifies the cost of the City component of the EOCC at $14
million, and sets out sources of City funds ($7,334,000) required to
supplement the funding of $6,666,000 Infrastructure Program funding
approved for the project.
BACKGROUND
The City of Vancouver Fire and Police Communications Centres and the
Emergency Operations Centre are located in buildings (312 Main and #1
Firehall) which are vulnerable to damage from earthquake. In addition,
since virtually all of the City's communications infrastructure flow
through a single location, it is vulnerable to a major, single point
failure. Fire and Police communications are not inter-operable, which
is a significant limitation in an emergency situation. Further, they do
not provide communications capability for work groups and inter-agency
task forces to operate independently. Police forces and fire
departments across the region do not have systems which enable them to
communicate effectively with one another in many circumstances.
These issues have been identified in a number of reviews and reports:
- The Oppal Commission identified the need for
regionally based communications systems;
- The B.C. Police Commission review of the Stanley Cup
riot identified the need for improved inter-agency
communications and an improved Emergency Operations
facility;
- The Vancouver Police review of the Stanley Cup riot
identified the need for improved communications
(some issues have been dealt with);
- The Vancouver Fire Department after-action report on
the Stanley Cup riot identified the need for
improved communications.
- Council authorized an application for infrastructure
funding for a new EOCC, at an estimated cost of $12
million excluding land (consistent with the current
estimate of $14 million for the total project);
- Council authorized an initial allocation of $100,000
to develop the architectural program for the
required City operations in the EOCC. This study is
presently being undertaken by Aitken Wreglesworth
Associates in conjunction with Charles Drulis
Architects and is scheduled to be completed by
August 31, 1995.
- Vancouver Fire Department outside agency debriefing
meeting regarding the Coast Guard fire of July 8,
1991 recommended the need to be able to communicate
with other agencies.
- Council authorized a review of the City s
communications systems in 1993, which identified a
number of the deficiencies referred to in this
report; and
- The Attorney-General s Ministry has indicated it
wants to see police communications in the GVRD move
to a system which allows communications between
agencies when required.
For the most part, emergency communications systems in the region are
outdated, if not obsolete, and most agencies will be moving to upgrade
their systems within the next few years. The RCMP has proposed both a
new communications system and consolidation of existing multiple
dispatch centres to two to serve the lower mainland from Vancouver to
Hope. Some municipalities are considering contracting their Fire dis-
patch operations to others. If significantly improved systems which
provide the capability for inter-agency communication on a broad scale
are to be implemented, coordinated decisions will have to be taken in
this direction in the next few years, or a series of independent system
upgrades will perpetuate the present situation and preclude the
possibility of compatible communications systems for a very long time.
The development of the Vancouver EOCC offers an opportunity to achieve
significant movement towards this objective, bringing benefits to both
the City and other participants.
DISCUSSION
The EOCC
Replacement of the City dispatch centres, key communications facilities
and emergency operations centre in a secure, post disaster building has
been identified as a high priority. Experience in other cities which
have suffered major disasters has demonstrated the critical need for
good operational communications. The lower mainland is overdue for a
major earthquake, and scientists are unanimous that the questions now
are "when", not "if", and how big will the earthquake be. The recent
experience in Oklahoma has demonstrated that no area is immune from the
potential for a major emergency. Even the Stanley Cup riot -- by
international standards, a relatively minor event -- strained our
present communications capabilities.
Much of our emergency communications equipment requires upgrading.
While the Fire Dispatch centre has recently been upgraded, virtually all
the Police dispatch consoles and hardware needs to be replaced. Our
present Emergency Operations Centre consists of rooms which are in daily
use in a seismically vulnerable building, without any of the information
handling and display capability contained in a modern centre, without
adequate work areas, and without the support amenities for prolonged
operation in the event of a disaster. The separation of the Police and
Fire centres by several city blocks complicates communications between
the two headquarters. There is little in the way of backup
communications facilities.
The new EOCC will address all these issues. It will provide adequate
space and the communications hardware within the centre will be upgraded
to a high standard. The Police and Fire computers will be housed in the
centre. Backup power and redundant systems will ensure continuing
operation. Systems to handle and display emergency information will be
built in . Just the fact that Fire and Police communications will be
in the same building and will be sharing information in a situation
room will assist in inter agency communication in the event of a
significant emergency.
Communications Systems
Existing City communications systems, like most in the region, are
outdated. Much of our equipment is well beyond its normal operating
life. While it continues to operate successfully, channel loadings are
excessive; there is limited capability to service inter-agency work
groups or even set up tactical communications for a significant
emergency. Our systems are vulnerable to incidents which may impact our
communications plant, which is concentrated in a single location. We do
not have provision at this point for back up satellite communications.
Our computer aided dispatch does not have the capability to transmit
graphic images.
Much of this system will require replacement in the next few years, at
considerable cost. We will need to consider how best to provide the
capability, security, and redundancy required for good emergency
communications. Some of these decisions may impact on decisions we will
need to make in regard to the new EOC, particularly with respect to the
City s underground plant and the location of the new EOCC.
Communications technology has developed significantly. New trunked and
digital radio systems offer substantial improvements. Automatic
location of units, for example, enhances personnel safety and offers
operational efficiencies. Geographical information systems can now be
linked to communications systems to provide image data to mobile units
in the field. The integration of communications and computer
capability, even at the level of computerized telephone systems, offers
significant enhancements over what currently exists.
In addition to enhancing emergency response, new technology offers the
opportunity to reduce costs. For example, reports can be entered from
the field, reducing the need for staff to spend valuable time reporting
to the office. Improved information in mobile units will make field
operations more efficient thus reducing lost crew time.
Our systems will require replacement soon as a result of age and lack of
capacity. Costs will be significant -- perhaps in the order of $20
million -- but we will have the opportunity to put new technologies to
work to increase effectiveness. Although the need for replacements is
not driven by the new EOCC, it is sensible to develop a plan for the
redevelopment of our systems in conjunction with construction of a new
EOCC, to maximize the benefit from these expenditures.
Much of the required information to develop a communications plan has
been provided in a consultant study completed in 1993. This study
should now be updated, and a multi year implementation plan developed,
with a view to including appropriate funding in the 1996 capital plan,
so that new equipment can be specified and purchased for installation
concurrent with the completion of the EOCC.
Participation by Other Agencies
Post disaster buildings are more expensive to construct than regular
buildings, and the computer and communications technology to serve them
is more complex and costlier. Co-locating and consolidating operations
offers economies of scale to all participants. More significantly,
coordination of response to daily and major emergencies can be
significantly enhanced.
Discussions within the last few weeks have confirmed that the B.C.
Ambulance Service wishes to participate in the development of the new
EOCC and locate both its regional office and its dispatch centre there,
if their financial and operating requirements can be met. They are also
requesting that we add the capability to provide computer aided dispatch
to their units with our existing systems.
Representatives of both the Provincial Emergency Program (PEP) and
Police Services in the Ministry of the Attorney-General have advised us
that significant participation by other agencies could offer operating
improvements and efficiencies. The Director of PEP believes that a
regional coordination centre where representatives of all municipalities
and a number of related agencies could meet would be invaluable in a
major emergency. He has indicated he would seriously consider locating
the PEP regional office in the new EOCC. Police Services officials have
advised that the Ministry wants to ensure that a regionally compatible
police communications system is developed, and that so long as there is
an adequate back up facility, consolidation of dispatch operations would
provide reduced costs and offer the potential for better coordination.
Staff from several municipalities have suggested that a regional
coordination centre should be a high priority for the recently approved
Provincial-Municipal Liaison Committee on Emergency Planning. Other
agencies, such as utility companies, have expressed interest in
obtaining space for their representatives in the new Emergency
Operations Centre.
In view of the timing of the EOCC, it offers a significant opportunity
to bring a number of elements together, which will provide operational
and cost benefits to all participants. We are recommending that Council
authorize us to negotiate with interested parties to obtain commitments
to participate in the EOCC at the earliest possible opportunity, on the
basis that:
- each agency bear a proportionate share of the
building and common facilities costs according to
their space requirements and system utilization, on
either a lease or a capital-prepayment basis, and
- participating agencies pay the costs of any
independent communications facilities they may
require.
Funding
The cost estimate for the new EOCC, at $14 million including land, is
unchanged from the initial report to Council recommending an application
for infrastructure funding. Discussions with the Province during the
application review process led to a reduction in the elements covered by
our request, but the overall project estimate remains unchanged.
With infrastructure funding of $6,666,000, the City share for the
project, scaled to meet City needs only, stands at $7,334,000. We
recommend funding the City share from three sources:
- City Infrastructure Borrowing Authority - $2,474,000
As part of the 1987-1990 Capital Plan, the electorate approved borrowing
authority of $10 million to fund the City share of an anticipated senior
government infrastructure program to reconstruct various City works. To
date, $4,657,000 of that borrowing authority has been allocated to fund
the City share of infrastructure grants under the current federal-
provincial program. This report proposes allocating a further
$2,474,000 to the EOCC.
- Reallocation of Fire Hall Borrowing Authority -
$2,360,000
As part of the 1994-1996 Capital Plan, the electorate approved borrowing
authority of $2,860,000 for the reconstruction of Firehall 18 (1375 West
38th Avenue). This project while still of critical importance will be
deferred until next Capital Plan when voter approval will be sought.
The Fire Chief recommends that the funding be directed to the EOCC as a
higher priority for voter approved Fire Capital funds at this time.
Varying the purpose of capital funds approved by plebiscite requires a
bylaw approved by a two thirds majority of Council. This report
recommends the Director of Legal Services bring forward an appropriate
bylaw.
- Fire Insurance Proceeds
As a consequence of the fire at the City owned Sterling Shipyards, there
are insurance proceeds projected to total $2,500,000. These funds can
be applied to the EOCC.
Timing
The infrastructure program requires that expenditures be made within a
limited period. Our current program calls for completion of the
facility before the end of 1997. This will meet the requirements of the
program, but leaves little time for the development of partnership
agreements. We believe that most major partnership agreements will have
to be concluded by October-November of this year in order for design and
construction to be completed in time.
At this stage of the project, consultant contracts will have to be
awarded in the next six weeks. In the absence of Council meetings
during the break period, we are recommending the City Manager be
authorized to award such contracts, up to a maximum of $200,000 per
contract.
In an earlier report Council approved the award of the study phase
consulting services to Aitken Wreglesworth Associates (architects) in
association with Charles Drulis Architects (EOC specialist) and
Teleconsult Limited (telecommunication). This study is underway and is
expected to be completed in August 1995. Given the satisfactory
performance of the study team to date it is recommended that their scope
of work be expanded to include the detailed design phase of the project.
Aitken Wreglesworth Associates have been requested to seek proposals
from structural, mechanical, electrical and costing consultants for the
detailed design phase for award in August 1995.
CONCLUSION
The development of a new EOCC is a high priority, and should proceed as
soon as possible. The provision of infrastructure funding and the
reallocation of existing City funding as outlined in this report makes
the project possible. In concert with this project, a plan to redevelop
the City s communications infrastructure will ensure that the City gets
the greatest possible benefit from the expenditure of the EOCC funds and
the funds which will be required in the near future for upgrades to the
communication system.
Given the opportunity to enhance regional communications and response,
to the benefit of all agencies including the City of Vancouver, major
efforts should be made to ensure all relevant agencies are aware of the
opportunity to partner in the new facility.
The recommendations of this report set out the basis for the development
of the new facility, the opportunity to develop it as a regional
facility on a partnership basis, and identify the required funding for
the City portion of the site.
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