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CITY OF VANCOUVER POLICY REPORT
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Date: |
August 27, 2004 | |||
Author: |
Wayne Oudijn | |||
Phone No.: |
604-665-6086 | |||
RTS No.: |
4101 | |||
CC File No.: |
1377 | |||
Meeting Date: |
September 16, 2004 | |||
TO: |
Standing Committee on City Services and Budgets |
FROM: |
General Manager, Vancouver Fire and Rescue Services |
SUBJECT: |
Vancouver Fire and Rescue Services Staffing Request - Report Back Requested at City Services and Budgets Meeting of March 11, 2004 |
RECOMMENDATIONS
A. THAT Council approves in principle the proposed amendments to the Fire By-law as summarized in Appendix A to this report, and authorize the Director of Legal Services to bring forward the By-law amendments generally as shown resulting in increased revenues of $249,500 starting in 2005.
B. THAT Council approves the addition of 4 staff positions to Fire and Rescue at an annual cost of $340,000 as follows:
i) two regular full-time Fire Prevention Inspectors in Fire & Rescue Services' Fire Prevention Division at an annual cost of $180,000 (beginning in 2005) including program and auto allowance costs.
ii) two regular full-time Public Education Officers for Fire & Rescue Services' Community Services Division at an annual cost of $160,000 (beginning in 2005) including program and auto allowance costs.
All four positions are based on a 10th year firefighter rate and are subject to final classification approval by the General Manager of Human Resources.
Funding to be provided from increased revenues of $249,500 based on Recommendation A and $90,500 increase to the Fire Department’s 2005 Operating Budget without offset (in advance of the 2005 Operating Budget). The proposed Vancouver Charter amendment allowing fees for fire inspections, if approved, would be utilized to offset staffing expenditures and reduce the net cost to approximately $40,500.
GENERAL MANAGER’S COMMENTS
The General Manager of Fire and Rescue Services RECOMMENDS approval of A and B, and notes that Fire Prevention and Public Education have been key roles highlighted in all formal Strategic Plans produced by the Department.
COUNCIL POLICY
Council has approved Fire By-law No. 8191, which governs Fire Safety Standards in the City, and approves and adopts amendments to the Fire By-law. Also, the City of Vancouver falls within the jurisdiction of the B.C. Fire Services Act, Sections 26(1) and 38(3) which require municipalities to provide a regular system of Fire Safety Inspections.
Council approves all additions to the regular full-time staff complement of departments.
SUMMARY
A previous council report was submitted to the March 11, 2004 City Services and Budgets Meeting entitled, “Vancouver Fire and Rescue Services Staffing Request” (RTS No. 03555). That report sought Council approval for the addition of two Fire Prevention Inspectors to assist in maintaining a more acceptable fire inspection interval for occupancies requiring inspection as required by the Fire By-Law. In addition, that report also recommended the addition of two Public Educators to provide increased public fire and life safety education and to provide nationally recognized programs to the elderly, those suffering economic restrictions, and individuals from other cultures and other groups. These important programs are not currently delivered due to limited Public Education staff resources.
Council had deferred this request to the 2004 Operating Budgets and postponed consideration of the March 11th report pending further information relating to potential cost recoveries and rates of injuries and fire damage.
This report proposes a number of cost recoveries which are estimated to be $249,500 per year. These cost recoveries can be achieved through increases to a number of permit fees to more closely reflect impacts on staff time, implementing a permit fee for fire lockboxes, and increasing minimum fines for By-law infractions. This report also requests approval of the addition of four staff positions.
PURPOSE
This report is in response to Council’s request for further information relating to the possible addition of four full time equivalent positions to Fire and Rescue. Specifically, information is provided relating to cost recoveries (some of which require amendments to the Fire By-law) and rates of fire injuries and property damage.
BACKGROUND
During the City Services and Budgets meeting held on March 11, 2004, Council considered a report from the Fire Chief requesting the addition of two regular full-time Fire Prevention Inspectors and two Fire Public Educator (Firefighter level) positions to Vancouver Fire and Rescue Services. That Report compared Fire Prevention and Public Education staffing levels in Vancouver with a number of other fire departments, and argued that the increased level of staffing is required to reduce fire inspection intervals, improve other Fire Prevention services, and to provide increased public fire and life safety education. Staffing levels in Fire Prevention have not been increased for many years, and permanent Fire Public Safety Education staff levels have never been increased. Currently only one full-time Captain is assigned to public education and media relations and a firefighter has been temporarily seconded from Fire Suppression to this area.
The March 11th report was deferred to the 2004 Operating Budget, and Council also passed a motion, “THAT consideration of the following (recommendation contained in the report – RTS # 03555) be postponed, pending report back on fee structure and cost recovery, including information on rates of injuries and fire damage.”
DISCUSSION
Fire Loss and Casualty Statistics
Twelve years of fire loss statistics are included in Appendix B. The table includes the number of fire incidents each year, estimated fire dollar losses, estimated arson dollar losses, and annual fire deaths and injuries. The trends are also shown graphically in the charts contained in Appendix C, and in absolute terms the total annual fire losses are increasing. The trend in fire deaths is also increasing although this is less obvious due to the variability and relatively low numbers. Fire injuries have been declining over this 12 year period.
It is difficult to draw definitive conclusions about the underlying reasons for these trends, or to make any strong statements about what the causes of these trends may be (there likely are inter-related causes). The increase in annual fire dollar losses after adjustments for Vancouver’s CPI for shelter shows an upward trend. However, examining the statistics on a per capita basis, fire losses have actually been slightly decreasing over the period. Also, on a per capita basis, Vancouver compares favourably with surrounding municipalities. Vancouver has consistently taken the lead in enacting progressive Fire Code requirements (an example is the residential Fire Sprinkler Program), as well as in providing innovative Public Education Programs. These initiatives and programs, in conjunction with a well-equipped, well-trained, and well distributed Fire Suppression force, probably explain the success in Vancouver.
We have been unable to locate a study which correlates increased fire prevention or public education staffing levels directly to quantifiable reductions (in monetary terms) in fire damage and loss. However, the consensus among Fire Chiefs and Fire Service professionals is that the most cost effective way to reduce the negative impact of fires (property loss, injuries, deaths, suffering, etc.) is to increase public education, improve building codes, and enforce fire regulations. Very few believe that the past tendency to use more 'muscle and hose' is the most appropriate response in every case.
Based on Vancouver’s experience and the experience in other jurisdictions, increased public information and education and increased fire by-law enforcement will have a positive effect in reducing fire losses and casualties.
Proposed Cost Recoveries
A number of items are proposed as cost recoveries to substantially offset the ongoing funding requirement for these four positions. Increases to a number of permit fees, which have not been increased for several years (in most cases for 12 years), are suggested to represent a more accurate reflection of the staff time and costs of providing these services. As an example, we are requesting that the permit fee for removal of underground fuel tanks be increased from $100 to $300 since up to six hours of staff time can be required for each tank removal. The addition of these four positions, in addition to improving inspection intervals and public education, will assist in realizing these increased revenues.
Re-inspections have generally been charged at a flat rate of $100, even though they usually take over an hour to complete. Re-inspections will now be charged based on actual time spent ($100 per hour or part hour), and will average $200 per re-inspection. Other permit cost increases suggested also reflect impacts on staff resources.
In the past, charges have not been filed for fires which cause damage in unsecured rubbish containers. These types of fires are preventable and can pose a significant threat to adjoining buildings and vehicles. Fires (with damage) in an unsecured rubbish container will now result in charges being laid against the owner of the container.
Additional Potential Cost Recoveries
Recovery of the costs of fire investigations (for fires in excess of $2,500 in damage), through a fee for service, has also been discussed. A charge for this service cannot be implemented at this time, since we are advised that a Charter Amendment is required to provide authority. We believe that this provision should be included in the next request for a Charter Amendment. If this approach is successful, the additional revenue will be used to further offset the costs of these four new positions. Expected revenue from this source is approximately $50,000 per year.
FINANCIAL IMPLICATIONS
Annual Costs of Positions
Annual estimated costs of these four positions are as follows:
2 Fire Inspectors & 2 Public Ed. Firefighters – (salary plus benefits1) |
$ 336,000 |
Reduction in overtime costs2
|
($ 20,000)
|
Auto Allowance |
$ 14,000 |
Total Estimated Annual Cost Of Four Positions |
$ 340,000 |
1 10th Year Firefighter rate (2005 rates)
2 For the past several years, a firefighter has been seconded from Fire Suppression to Public Education. The cost of removing this staff member out of Fire Suppression (additional overtime costs, etc.) is approximately $ 20,000. If additional public education staff is approved, this member will be returned to regular duty in Fire Suppression.
TABLE 1 Proposed Cost Recoveries
Service |
Current
|
Proposed
|
Increase in
|
Open air burning |
$100 |
$200 |
negligible |
Wholesaling fireworks |
$100 |
$200 |
negligible |
Fireworks Retailer |
$ 30 |
$ 75 |
$ 3,500 |
Possessing fireworks |
$ 30 |
$ 75 |
negligible |
Firing display fireworks |
$100 |
$150 |
$ 1,000 |
Firing display fireworks (non-profit groups) |
$ 10 |
$ 20 |
negligible |
Transportation of explosives |
$140 |
$200 |
negligible |
Blasting permits |
$140 |
$200 |
negligible |
Installation\removal of fuel dispensing pumps |
$140 |
$300 |
negligible |
Fuel tank removal |
$100 |
$300 |
$ 100,000 |
Search Letters |
$ 60 |
$100 |
$ 15,000 |
Occupant Load Permit (depending on size) |
$200 |
$300\$500 |
$ 10,000 |
Re-inspection |
$100 |
2 hr. min. |
$ 30,000 |
Fire Lock Box Permit |
No permit |
$100 |
$ 20,000 |
Increase in minimum fines |
$100 |
$500 |
$ 20,000 |
Fine for fire in unsecured rubbish container |
Not pursued |
$500 |
$ 50,000 |
Total Increased Revenue & Cost Recoveries |
$249,500 |
With Council approval of the proposed changes to the Fire By-law and Permit and Inspection Fee Schedules, the net annual cost of these four positions would be approximately $ 90,500. (annual cost of $340,000 less $249,500 in estimated revenues).
The proposed two new fire inspector positions will assist in the increased staff time demands of the fuel tanks removals, file searches, and Fire By-law charges.
PERSONNEL IMPLICATIONS
The approval of the four requested positions will increase Fire & Rescue’s staffing by four Full Time Equivalents (FTEs). The classification of these positions will be subject to approval by the General Manager of Human Resource Services.
SOCIAL IMPLICATIONS
It is expected that the addition of these four positions will result in a reduction of fire related casualties and property damage over time. While the impacts will not be felt immediately, we have found that improvement in code enforcement and public education does have a significant effect. For example, in 1973 Vancouver experienced 40 annual fire deaths. After a focussed effort in upgrading fire safety in rooming houses through a combination of improved building and fire codes and public education, annual deaths were dramatically reduced. In fact, in 1998 there were zero deaths. Since then we have suffered annual fire deaths at a rate of between 4 and 8 per year. Further improvements would be related to additional and enhanced public safety education initiatives and improvements to fire safety inspections and code enforcement. In addition, new programs could be provided to segments of Vancouver’s population which have not been as well-served with regards to fire and life safety education. Specific programs will be developed for seniors, multi-cultural groups, and other identified sectors of the population.
IMPLEMENTATION PLAN
If Council approves the addition of these four additional FTEs, the positions would be filled via a competition, with a target of placing the new staff in January, 2005.
COMMUNICATIONS PLAN
Some of the identifiable organizations and groups that might be affected by these By-law changes have been informally notified about the possible fee changes. If Council approves these changes, these organizations will be formally notified about the details and timing of the changes.
Subject to Council approval, the four new uniformed positions would be posted internally, and the Firefighters’ Union Local 18 will be notified of the establishment of these new positions within that bargaining unit.
CONCLUSION
The additional costs of these four positions can be substantially offset by cost recoveries through increased fines, permit and inspection fees. Although it cannot be accurately quantified, the addition of these four positions should result in reduced property losses, deaths and injuries due to fires and other preventable accidental causes in Vancouver.
APPENDIX A - Proposed Changes to Fire By-law #8191
APPENDIX B - Fire Statistics From 1992 to 2003
APPENDIX C - Tables to Appendix B
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