PROGRAM SELECTION, DEVELOPMENT AND IMPLEMENTATION
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2.1 INTRODUCTION
Once a community's fire risks have been
identified, programs that are most likely to address these risks
should be selected, developed and implemented.
Fire prevention activities can be separated into three basic areas:
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Accurate information about fires can
be gathered only from evaluating related incidents. Fire Incident
Evaluation is considered a necessary component of any effective
fire prevention strategy. Inspections are appropriate when the
lack of fire safety in properties significantly contributes to
the fire problem. Public education is best suited to improving
fire safety knowledge and awareness when the lack of it has been
identified as a significant contributor to the fire problem.
This section describes the three areas
of fire prevention and provides information about the programs
that may be conducted within each area. This information will
assist fire departments in selecting programs to address the community's
fire risks which were previously identified in the needs analysis.
Part of the selection process involves assessing the available
resources. It may be necessary to modify a program if adequate
resources are not available or to consider a different program
to address a particular issue. Alternatively, it may be more appropriate
to improve the available resources prior to developing a program.
The specific resources required to carry
out inspection, public safety education and fire incident evaluation
activities will vary. It may be necessary to select a program
that is less effective if the resources for a more effective program
cannot be allocated initially. For example, a routine inspection
of a specific occupancy may be appropriate to address a fire risk.
However, only a public safety education program for the property's
owners can be provided given the available resources.
This may also be done as an interim
step while you are improving the available resources in order
to provide a more effective program. For example, while training
fire suppression staff in inspection skills prior to implementing
a fire company inspection program, it may be appropriate to institute
a public safety education program to remind property owners of
their responsibilities.
Note: When determining the appropriate
program to implement, the impact of re-allocating resources must
be considered. An evaluation of existing programs will indicate
what the effects will be of changing, reducing or eliminating
such programs.
2.2 MINIMUM SUGGESTED PROGRAMS
It is strongly recommended that fire
departments conduct at least the following fire prevention
programs. These are the minimums that are expected from all communities,
regardless of size. The amount of activity required for a small
community may be quite limited. Also, the means chosen to deliver
the required services may differ, depending on the local circumstances.
Municipalities are expected to use their
available resources to best effect. The more resources available,
the greater the expectations of service. Consequently, communities
with significant resources are expected to provide more services
than the minimum that are defined here.
An effective approach to address fire
risks is to combine complementary programs that target the same
risk. Programs such as TAPP-C (The Arson Prevention Program for
Children) are effective because they combine elements of fire
safety education (educating the juvenile fire-setter and caregiver)
with inspections (of the juvenile fire-setter's home) and evaluation
of fire incidents.
Inspections
It is strongly recommended that communities
at least conduct Complaint Inspections of properties within their
jurisdiction and Request Inspections, where the request is a result
of concern for fire safety (e.g. not for insurance purposes).
Municipalities need to respond when
fire safety hazards or violations are brought to their attention.
Failing to investigate a fire safety complaint may leave a municipality
at risk from litigation. The municipality may be considered partially
responsible for not taking steps within their authority to correct
any hazards brought to its attention. Conducting Complaint Inspections
and following up on any violations will help to address this concern,
as well as ensure that any confirmed violations are corrected.
Requests for inspections to assist owners
in complying with fire safety legislation should be fulfilled.
When concerned citizens request assistance to assess their fire
safety, it is reasonable to expect that the fire department will
help. Conducting Request Inspections meets this expectation.
Also, certain provisions of the Ontario Fire Code require the
approval of the Chief Fire Official, (e.g. fire safety planning,
where the property owner cannot comply with the Fire Code without
the assistance of the fire department).
Where there are sufficient resources,
a community should actively promote compliance with fire safety
legislation by means of regular Routine Inspections or some other
suitable program.
Violations noted during any inspections
need to be corrected. The municipality is responsible to enforce
compliance, as necessary.
Public Safety Education
A suitable program should be implemented
to improve fire safety knowledge and awareness in the community.
The fire risks of a community are dependent upon how knowledgeable
and aware its residents are. The fire department should do what
it can within its capabilities to improve and/or maintain this
awareness. As the threat of fire is higher in residential occupancies,
these occupancies and its residents are usually targeted.
Fire Incident Evaluation
An accurate Standard Incident Report
should be completed for all fires within a department's jurisdiction.
The fire service relies upon the information
gathered at fire scenes to understand and improve fire situations.
Enhancements in firefighting, legislation, equipment, education,
construction, and other factors affecting fire safety depend upon
fire incident evaluations. Therefore, it is extremely important
that fire departments collect sufficient and accurate information.
It is strongly recommended that additional information be gathered
at fire scenes to help evaluate the effectiveness of fire department
programs (e.g. status of smoke alarms).
Required Staff
There must be a sufficient number of
adequately trained staff to deliver a program. Required duties
may include field activities associated with selected programs,
supervisory duties (directing, monitoring, and evaluating), and
clerical and support functions. Staff must be able to carry out
their duties in the most effective manner to achieve a program's
objectives. (See Appendix I which can be used as a guide to help
assess the staff required for any chosen program.)
It should be emphasized that staff skills
and knowledge are extremely important in order for a program to
achieve credible and effective results. If the available staff
do not have the skills and knowledge mandated for a specific program,
a comprehensive training course may be required. If staff do have
an adequate level of skills and knowledge, training should still
be provided on a regular basis to maintain this level.
Program Guidelines
Guidelines and policies should clearly
indicate to staff the duties and responsibilities required for
each program. This will help to ensure that the programs are carried
out in the most effective manner. (See the Development
and Implementation Section for further information regarding the
activities that should be included in operating guidelines.)
Having comprehensive guidelines (and following them consistently) can also help in dispelling any perception of differential treatment. For example, when inspecting a property owned by a relative or a municipally owned property.
Fees For
Fire Prevention Services
Many fire departments already charge
fees for services. Prior to levying charges for fire prevention
services, the potential implications to fire safety and the appropriate
process to begin charging fees need to be considered.
Generally, fees should not be charged
where the failure to pay prevents the delivery of fire prevention
services which benefit the community. For example, charging fees
for conducting complaint inspections or routine inspections may
reduce their success. The department must consider what action
to take if the fee is not paid and whether non payment may prevent
the inspection from being done. Such a result should not be acceptable.
Before charging for services, a department should develop a plan
on how charges will be implemented.
Charging a fee for service may be used to encourage fire safe behaviour. For instance charging a fee for request inspections where there are violations found (in addition to any necessary prosecution) but providing the inspection for no charge if no violations are found.
2.3 INSPECTIONS
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2.3.1. Selection
Description
An Inspection Program involves inspecting
selected properties and taking subsequent action(s) to achieve
an acceptable level of fire safety. In the community, a program
of this type has the potential to:
A successful inspection program requires
the department to assign adequately trained staff to:
Selection
Several issues must be addressed when
selecting an Inspection Program:
a) the objective(s) of the program;
b) the properties that will be subject to inspection;
c) the types of inspections to conduct (e.g. Routine, Complaint);
d) the methods to use in conducting inspections;
e) the categories in which inspected properties will belong; and
f) the frequency of inspections.
Program Goals and Objectives
A goal should be established for each
program. The following goal would be appropriate for an Inspection
Program:
"To achieve an acceptable level
of fire safety for the community and to provide a safe environment
for occupants by ensuring that properties meet or exceed the Ontario
Fire Code and other relevant legislation."
An effective inspection program also
needs objectives that are realistic and measurable. These will
help to monitor the delivery of the program and in evaluating
its results. (See Section III for further details of measurable
objectives.)
Maintaining a property in a fire safe
condition is the responsibility of the owner, and possibly, the
occupant. The purpose of the inspection is to determine whether
the owner is maintaining a fire safe property. It is not just
to identify violations of fire safety legislation.
Properties Subject To Inspection
A needs analysis will determine which
properties should be subject to inspection. Consideration should
be given to the types of properties, occupancies, and/or occupants.
Types Of Inspection
The different ways that inspections
of properties can be initiated in a community are described below.
Those that are most appropriate to address a community's fire
concerns should be selected.
Conducting Complaint inspections is
strongly recommended. Request inspections should also be provided
(or at least, the implications of not providing this type of inspection
should be considered).
Complaint Inspections
Description: Inspection
of hazards and violations brought to the department's attention
by citizens, fire crews, agencies or other third parties.
Results: Addresses
identified hazards by confirming/identifying hazards and code
violations, issuing notices of violation, and following up or
prosecuting for non-compliance as necessary.
Departments may be considered partially
responsible for hazards which have been brought to their attention.
Conducting Complaint inspections will help to address liability
concerns.
Considerations:
Inspections are conducted and remedial action taken only when
a hazard has been identified. It will not address every hazard
in the community (or a particular property type).
Request Inspections
Description:
Inspection of a property upon the request of a person concerned
about the level of fire safety. For example, a property owner
may request assistance to determine the acceptability of an existing
commercial cooking equipment exhaust and fire suppression system.
Note: This does not include inspections
for licensing or insurance purposes. These types of inspections
are termed Information Inspections and are described later.
Results: Assists in improving the fire safety of properties involved in the requests. Also, it allows a property owner to benefit from the fire department's discretionary authority for Fire Code requirements and provides the necessary approval of the Chief Fire Official where an owner is required to comply with the Fire Code.
Considerations: Only those properties that the department is requested to inspect are inspected. Not providing this service will prevent a fire department from exercising discretionary authority and impede owners from complying with the Fire Code.
Description:
Inspections of properties under construction prior to and during
occupancy. These inspections are conducted in cooperation with
municipal building officials. May include plan review and consulting
regarding construction projects, depending upon the agreement
with the municipal building official.
Results:
Ensures that new buildings are provided with the necessary fire
safety features prior to occupancy. Fire departments will be aware
of new buildings which allows them to become familiar with new
equipment and to pre-plan for fire responses. This helps to ensure
that approved fire safety plans are in place when the property
is ready for occupancy.
Considerations:
Requires very detailed inspections which involve the commitment
of substantial resources. An agreement must be reached with the
Chief Building Official regarding authority and jurisdiction.
Routine Inspections
Description:
The inspection of selected properties on a regular basis. Usually,
targets identified risk occupancies. The inspections may be thorough
or more cursory depending upon the established procedures.
Results:
Most effective way of ensuring that targeted properties achieve
an acceptable level of safety.
Considerations:
May require a large commitment of resources. Once properties are
determined to be in compliance, consideration of a Self-Compliance
Inspection Program may be appropriate. This will reduce staff
time requirements in future.
Self-Compliance Inspections
Description:
A program to help owners conduct an inspection of their properties
to assess for compliance and fulfill their responsibilities for
fire safety. This program consists of two parts. The first, a
complete inspection of selected properties to ensure that Retrofit
regulations and fire safety planning have been addressed for the
property and that the property is in a good state of compliance
with fire safety legislation. The second, monitors the owner's
efforts to maintain the required level of fire safety by reviewing
information regularly provided by the property owner. This can
be done in conjunction with a modified routine inspection program.
Results:
Ensures that all targeted properties achieve an acceptable level
of safety.
Considerations:
Achieves the same results as a Routine Inspection program but
requires fewer resources to maintain upon completion of the first
phase. Careful consideration should be given to the legal implications
of replacing or changing the frequency of a routine inspection
program with self-compliance inspections.
Smoke Alarm Check
Description:
A limited inspection that only checks the placement and operation
of smoke alarms in residential properties and provides safety
information to occupants. To assess electrical wiring and service
equipment, such as furnaces and wood stoves, occupants should
be referred to competent service technicians unless the person
conducting the inspection is adequately trained and is prepared
to follow up to ensure correction of noted hazards.
Results:
Improves the reliability of smoke alarms in residential occupancies
and enhances the fire safety awareness and knowledge of the occupants.
Working smoke alarms are the most effective means of reducing
fire deaths and injuries.
Considerations:
Requires the development of fire safety materials which provide
information on fire safety planning, checking a home for safety
hazards, smoke alarm installation and maintenance. It may also
require fire departments to secure funding or a supply of batteries
and smoke alarms to give away during the check. Firefighters need
to be adequately trained and their role clarified, particularly
in dealing with violations of the Fire Code or smoke alarm by-laws.
Fire Company Inspections
Description:
The inspection of targeted properties by in-service firefighters
to an established standard and frequency. These inspections may
be conducted in support of a Self-Compliance Inspection Program.
Results:
Ensures that all targeted properties achieve an acceptable level
of fire safety.
Considerations:
Require comprehensive supervision to ensure that inspections are
conducted effectively and compliance is achieved. If in-service
firefighters are unable to meet the knowledge requirements to
conduct a proper inspection of the identified category of properties,
then it may be more appropriate to allocate these staff to another
program.
Information Inspections (e.g., Licensing,
Funding, Resale, Insurance Requests)
Description:
An inspection of properties upon the request of interested parties
for the purpose of providing a compliance letter or list of violations.
Results:
Provides a service to interested parties to allow them to receive
licenses, funding, etc.
Considerations:
Results are limited to those properties that the department is
requested to inspect. Providing inspections of properties upon
the request of interested parties, for insurance, licensing, funding
or property resale purposes, is primarily an administrative service.
(This includes the majority of wood stove inspections currently
done in residential occupancies). Information inspections do not
address the fire safety of properties effectively unless they
are conducted as part of a comprehensive inspection program of
all related properties.
Fire departments either planning to
provide these types of inspections or are directed by their municipalities
to provide them, should seek the advice of their municipal solicitor
to properly manage any associated risk.
Instead of an inspection, it may prove
more appropriate for the fire department to check its records
and, with proper authorization, release the information to the
interested party. This should work particularly well in conjunction
with an established inspection program of all properties in the
subject risk category.
Method Of Inspection
Acceptable methods of conducting fire
safety inspections are described below. An appropriate method
must be established for any inspection program.
Method I
Suitable for Complaint, Request, Routine,
Fire Company and Information inspections.
Note: For Complaints Inspections, the
identified hazard and the area immediately adjacent to the hazard
would also be inspected, in addition to the above. This also applies
to a program that targets a specific hazard (e.g., smoke alarms,
propane).
Method II
Suitable for Complaint, Request, Routine,
Fire Company and Information inspections. This method is the same
as Method I except for item 3 above.
3) Conduct a basic visual inspection
of the:
Suitable for Complaint, Request, Routine,
Fire Company and Information inspections.
This method is the same as Method II
except that all areas must be inspected excluding individual dwelling
units but including all typical floors.
Method IV
Suitable for Retrofit inspections.
This method is the same as Method III
except that all areas of the building must be inspected, including
a representative sample of the individual dwelling units.
Method V
Suitable for New Construction inspections.
An agreement should be reached with Building Officials to establish
areas of responsibility.
Method VI
Suitable for Self-Compliance Inspections.
Categories Of Buildings
To help determine the level of skills
and knowledge that are required to inspect the variety of properties
in a community, the following categories of buildings have been
defined. This information is intended as a guide only, as it does
not include every conceivable variation. If a property does not
fit into one of the categories, consider the relevant factors
and place it in the category that seems the most appropriate.
Category A
Includes buildings that:
Staff assigned to inspections in this
category must be able to demonstrate an acceptable level of knowledge
of:
Note: Basic fire safety includes:
Category B
Includes buildings that:
In addition to the requirements of Category
A, staff assigned to inspections in this category must be able
to demonstrate an acceptable level of knowledge of the following:
Category C
Includes buildings that:
In addition to the requirements of Category
B, staff assigned to inspections in this category must be able
to demonstrate an acceptable knowledge of the following:
Category D
Contains an occupancy subject to Retrofit
which has not achieved compliance:
Note: A Method IV inspection is appropriate
for this Category of buildings.
Staff assigned to inspections in this
category must be able to demonstrate an acceptable level of knowledge
of:
And where relevant, of:
Category E
Includes buildings that are of new construction or renovation subject to the Ontario Building Code (OBC);
Note: A Method V inspection is appropriate
for this Category of buildings.
Staff assigned to inspections in this
category must be able to demonstrate an acceptable level of knowledge
of:
And where relevant, of:
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