Table of Contents
1. Purpose and
Scope
3
2. Background
4
3. Building
Vulnerability Assessment
7
4. Security
Measures
11
5. Developing the
Emergency Plan
13
6. Emergencies Due
to Human Activity
22
6.1
Fire/Explosion
23
6.2
Bomb Threats
25
6.3
Biological and
Chemical Threats
31
6.4
Suspicious
Package/Device
34
6.5
Physical
Threats
37
6.6
Hazardous
Materials Accidents
38
6.7
Radiological
Accidents
40
6.8
Carbon Monoxide
41
6.9
Natural Gas
Leaks
43
6.10
Elevator
Malfunctions
43
6.11
Medical
Emergencies
44
7. Emergencies Due
to Natural Disasters
46
7.1
Earthquakes
47
7.2
Severe Storms
48
7.3
Floods
49
7.4
Major
Electrical Power Failures
50
7.5
Roof Collapse
51
Appendix A: Threatening Call
Telephone Procedures
52
Appendix B: Business
Continuity Planning
54
Appendix C: Committee to
Develop Emergency Guide
57
Appendix D: Abbreviations
58
1. Purpose and
Scope
This guide
is intended primarily to assist building owners, property managers and others
who are responsible for emergency management in large buildings including
high-rise buildings, those containing a high occupant load and other buildings
potentially at risk. Both natural and human-caused risks are addressed in the
guide. Types of emergencies range from people trapped in elevators to
earthquakes to terrorist threats.
Preparation
is the key to an effective response to any emergency. An emergency plan
should not be developed under the stress associated with an emergency that is
already underway. Therefore, planning, awareness training and periodic
exercises introduced prior to an emergency are essential to improving building
supervisory and occupant responses. Communication between building
owners/managers and emergency responders is essential to ensure that the
respective roles are clearly understood. This guide stresses the necessity of
establishing a planning team to prepare for an emergency and a response team
to make key potentially life-saving decisions in an emergency.
Numerous
stakeholders participated in the development of this guide (see Appendix C).
It is their hope that this information proves to be a valuable resource to
reduce the risk to occupants of these buildings.
2. Background
What
is an emergency?
Under the
Emergency Plans Act, (note: the name of the Act may be changing; the
definition of “emergency”, however, should remain the same) an emergency is
defined as a situation or an impending situation caused by the forces of
nature, an accident, an intentional act or otherwise that constitutes a danger
of major proportions to life or property.
Numerous
events can be "emergencies," including:
·
Fire/explosion
·
Hazardous materials incident
·
Flood or flash flood
·
Severe weather (hurricane, tornado, winter
storm)
·
Earthquake
·
Radiological accident
·
Criminal activity
·
Air plane crash
In
Ontario, Emergency Measures
Ontario (EMO), Ministry of the Solicitor General, is responsible for emergency
management programs for the Government of Ontario.
Elected
heads of council (municipalities and First Nations) are responsible for
ensuring emergency management plans and programs exist within their
jurisdictions. When emergencies do happen, most are dealt with routinely
at the community level by local first response organizations, including
police, fire and ambulances services and public works.
What
services do local emergency responders provide?
Although
services provided by the local emergency responders are determined by the
community government that employs them, developing emergency plans for
buildings is not normally a service that is provided. Therefore, it is
the responsibility of the building owner/manager to determine the type of
emergency plans needed for their particular building and to assign staff or
hire consultants to develop their plans.
Fire safety
plans that are required by Section 2.8. of the Ontario Fire Code must be
approved by the Chief Fire Official. Plans for other types of
emergencies do not require approval. However, building owners/managers
may wish to consult with their local fire department and other emergency
responders to ensure that their plans are compatible.
What
is emergency management?
Emergency
management begins at home. Building owners and managers are responsible for
ensuring public safety within their buildings in response to all types of
risks and occurrences. This guide provides step-by-step advice on how to
develop and maintain an Emergency Plan for a variety of incidents or
disasters.
Emergency
management is the process of preparing for, responding to and recovering from
any unplanned events that could have a negative effect on your organization.
Emergency management is not a one-time event, it is an on-going process.
Although planning is a critical first step, it must be followed by training,
drills and regular tests of building safety features and equipment. It is also
important that your emergency plans be co-coordinated with those of the
community.
Successful
emergency management must have the support of upper management. The owner,
chief executive officer, building manager or plant manager establishes the
importance of the process by instructing management to perform the necessary
planning and associated activities to create an effective emergency plan.
It is easier
obtaining support for emergency management activities if the benefits of being
prepared are stressed rather than the consequences of an emergency (e.g.
deaths, injuries, financial loss). For example, effective emergency
management:
-
Can reduce damage to the building and/or equipment thus
allowing the company to recover faster.
-
Assists in compliance with health and safety related
regulatory requirements.
-
Helps to show the organization showed “due
diligence” and may reduce exposure to civil or criminal liability in the
event of an incident.
-
Helps convey the image that the organization is a
concerned “citizen” of the community.
What
are the key steps in establishing an Emergency Plan?
There are 5
main steps in establishing an Emergency Plan. They are as follows:
Step
1 -- Establish an Emergency Management Team
Step
2 -- Analyze Risks and Response Capabilities
Step
3 -- Develop the Plan
Step
4 -- Provide Training and Exercise the Plan
Step
5 -- Test, Evaluate and Modify the Plan
Details on
each of these steps can be found in Section 5 of this guide.
Regardless
of plans developed for specific occupancies, building owners/managers and
occupants must clearly understand that their safety depends on knowing and
understanding their roles within the plans and appropriate actions to be taken
during an emergency or drill.
3. Building
Vulnerability Assessment
Although
emergencies could happen anywhere and at anytime, certain types of emergencies
are more likely to occur at some properties than at others. There are
five factors that affect the vulnerability of a building to certain types of
emergencies. These factors are:
·
Geographic Location
·
Immediate Environment
·
Property Type
·
Tenant Mix Or Resident Profile
·
Size And Construction
In
developing an Emergency Plan these factors should be assessed to ensure that
those risks that are specific to your building are adequately addressed.
Geographic Location
Certain
geographic portions of the country are more prone to certain types of
emergencies, particularly those relating to natural disasters.
Fortunately for Ontarians, earthquakes and hurricanes occur less frequently
here than in other geographic locations. However, severe winter storms
and tornadoes that may result in heavy flooding do occur on a regular basis.
As such, the property manager must evaluate the likelihood of these types of
events occurring where his/her building is located and plan accordingly for
those types of emergencies.
Immediate Environment
The
neighbourhood or community where your property is situated will influence the
type of emergencies it may face. Buildings located in major urban areas
face unique risks that are less likely to be found in rural areas. For
example, riots and public demonstrations are more likely to occur in urban
areas and may result in property damage and personal assaults.
Similarly,
buildings located in close proximity to major transportation routes or
industrial properties, such as nuclear power plants or hazardous
petroleum/chemical plants, would be vulnerable if a major accident were to
occur there. Therefore, the Emergency Plan should address potential
emergencies that may occur as a result of an accidental leak or spill.
An
important part of a property manager’s responsibility in developing an
Emergency Plan is to be aware of the different types of potential threats that
may exist. A good place to start in assessing threats is to obtain a
copy of the community emergency plan. Many communities have these plans or are
in the process of developing them. External resources may be
particularly helpful in identifying threats from sources outside of the
building. Owners/managers may need to speak to police and fire officials
as well as neighbouring building owners/managers to gain an appreciation of
their exposure to these risks.
Property Type
The purpose
for which the building is used, has a direct bearing on the type of risks
inherent to it. Residential towers, office towers, industrial plants,
hospitals, theatres, and shopping malls all require their own unique Emergency
Plans to address their particular situations and needs. All offer
different challenges based on varying factors specific to their occupancy.
The number of hours per day it is occupied, occupant load, building height
security levels, building contents, presence of hazardous products, and nature
of activities are all examples of varying factors that must be taken into
consideration when developing the Emergency Plan.
Tenant Mix or Resident
Profile
Buildings
that are occupied by politically sensitive organizations such as government
offices, military establishments, religious organizations, embassies, cultural
centres or abortion clinics have an increased likelihood of being the targets
of extremist groups. As such, the Emergency Plan may need to
specifically address threats, hostage situations or other criminal related
emergencies.
It is
important to realize that not all residential buildings are alike, nor are all
commercial, industrial and institutional properties alike. For example,
residential buildings may contain apartments that are occupied by typical
families or by people with special needs such as senior citizens or those with
disabilities. Is your industrial building used to store automobile parts
or is it a flammable liquids processing facility? Does your commercial
plaza also house industrial tenants or simply business and mercantile
establishments? Your Emergency Plan should take into account the various
tenant profiles within the property to address their specific needs and risks.
Size and Construction
The size of
the building with respect to height and area often determines the complexity
of the Emergency Plan. Obviously, a 70 storey office tower will require
a more complex Emergency Plan than a single storey commercial plaza.
Whether the
building is sprinklered or not will influence the Emergency Plan, for example,
by making it more or less viable to remain in the building in the event of a
fire. The building’s construction may also be critical in determining
how well it will withstand a natural or human activity related disaster.
Vulnerability Checklist
The following examples of occupancies may be particularly
vulnerable. If your building or an adjacent building
contains one or more of these occupancies, and depending on the level of
in-house expertise, you may wish to retain the services of a consultant
specializing in vulnerability analysis and risk assessment to conduct a
detailed evaluation of your building.
Military establishment,
Foreign embassy, consulate or high commission,
Sensitive
religious building
Nuclear agency
office or facility
Petro/chemical
office or refinery
Military
contractor
Police facility
Storage or manufacturing facility for explosive, flammable, or toxic materials
Public parking
located underneath or beside the building
Financial
institution or bank
Pharmaceutical
firm
Hospital or
medical clinic
Radical political groups
Symbolic or historical building
News media
Chemical/biological laboratory
Toxic waste facility
Power generation or distribution centre
Waterworks
Jail
Government (federal, provincial, or municipal)
Transportation (airport, bus terminal, rail station)
4. Security
Measures
How
important is security in deterring illegal acts?
Preventing
unauthorized entry of persons is one step in reducing the risk of illegal
acts. Features can include fencing, locked doors, electro-magnetic
locking devices, video surveillance equipment, check points and trained
on-site security personnel to name a few.
The
security measures introduced must be balanced with safety. Security
measures must never interfere with building features designed to facilitate
escape. Similarly, once a building has been evacuated, security
procedures must be in place to control the re-entry of building occupants, so
that security can be maintained.
The degree
of security provided is primarily based upon the nature of the building
occupancy, its design and associated needs and risks. Professionals familiar
with security measures should be consulted.
The
following information identifies a variety of security components that can be
improved, utilized or adopted.
Access
control: Access control measures can range from
simply having locked areas that are required to be secured to having security
at entry points, and utilizing one or more of the many types of card-readers,
chip-readers, and electronic locks that read information encoded on the cards,
disks, or keys carried by employees. Common systems incorporate insertion- or
swipe-readers that interpret magnetic-stripe cards, or proximity-readers that
do not require physical contact with the cards they read. Other components may
include the software for managing the distribution and encoding of cards and
the processing of transactions, as well as the strikes, contacts, and releases
that operate doors. Some more sophisticated systems incorporate biometric
devices based on fingerprints, voiceprints, retinal patterns and the like, to
allow or forbid access to restricted areas.
Intrusion detection: A variety of alarms are
available. Although infrared motion sensors are mostly used to protect
interior spaces, there are also motion detectors available for exterior use.
Other devices detect the shattering of glass, or the opening of windows and
doors. Video motion detectors that detect movement on video signals
transmitted from closed-circuit TV (CCTV) cameras are also available.
Lighting: One of the most basic and cheapest
security components. Carefully designed and coordinated interior and exterior
lighting systems can have a significant deterrent effect.
Monitoring and surveillance: Includes simple and
sophisticated CCTV cameras and the monitors and security command centres they
serve.
Vehicular traffic and parking control: These
components can also often play a role in building security. Not allowing the
public access to underground parking garages and (spacing) keeping vehicles a
safe distance away from the building reduces the potential for terrorists to
use a car bomb to attack the building.
Perimeter control: Includes elements such as
fences, walls, and landscaped berms that protect a facility's potential access
ways.
Managers
must ensure that the building occupants understand the purpose of the various
security features and how they will benefit from the increased security. They
will then be more likely to follow proper security procedures.
5. Developing the
Emergency Plan
How
do I plan for an emergency?
Every plan
must be tailored to the specific building and circumstances. An
Emergency Plan is best developed by gaining the input of the various affected
parties, analyzing risks and response capabilities, drafting and reviewing the
plan, and implementing and refining the plan based on feedback.
Step
1 – Establish an Emergency Management Team
The
property manager or an appointed designate should take the responsibility for
organizing an Emergency Management Team and developing the emergency
management plan in cooperation with tenant representatives. Emergency
planning is the responsibility of the building owner/manager and not the
emergency services.
In
multi-tenant buildings, the Emergency Management Team should include a
representative from each tenant occupancy. The senior manager of the
tenant occupancy should appoint this person.
Circumstances may require specialized input from facility and process
managers, building designers and other qualified individuals. In single
tenant buildings, it would be beneficial to obtain input from:
- senior
management
-
operations management
- staff
-
engineering, maintenance and custodial staff.
In
multi-tenanted buildings many more parties will have to be involved.
The
Emergency Management Team’s purpose must be defined. The purpose could
include the development and exercise of:
- emergency
plans for dealing with various types of natural and human-caused emergencies
including terrorist threats or incidents,
- internal
communications procedures for use during an incident or threat,
- training
for building occupants and key personnel in the Emergency Plans.
Step
2 – Analyze Risks and Response Capabilities
This step
entails gathering and analyzing information. Where available, the
community’s Emergency Plan may be a valuable resource.
The risks and hazards must be identified as well as the
response capabilities that are available. Once the
information has been gathered, a vulnerability analysis (See Section 3 for
more information) is conducted to identify gaps in the facility’s capabilities
for handling the emergencies. Review existing emergency plans. In many
instances these existing plans and procedures contain valuable practices and
strategies for responding to, and dealing with various risks and threats.
These could include, where applicable, the following existing plans or
procedures:
- fire
safety plan (including current building/site plans that clearly label all
tenant spaces)
- health
and safety program
-
environmental policies
- security
procedures
- shut-down
procedures
- hazardous
materials containment plans
- risk
management plans.
Identify
applicable federal, provincial and community regulations and by-laws such as:
·
occupational health and safety regulations
·
Ontario Fire Code
·
environmental regulations
·
zoning regulations
·
Community Emergency Plan
Identify
internal and external resources and capabilities that could be utilized in an
emergency:
-
personnel – security, emergency management group, fire wardens or floor
wardens, hazardous materials response team (where applicable), first-aid
providers – identify times of day or circumstances when key building
personnel are not available to undertake their assigned duties
-
equipment – communications, warning systems, security, emergency power
equipment, containment equipment, first aid supplies, fire protection, fire
suppression
- building
emergency features that can be operated from remote locations during an
emergency, such as HVAC, smoke control, communication, warning and security
systems
-
facilities – evacuation facilities, temporary shelter areas, first-aid
stations, decontamination facilities
-
organizational capabilities – training, evacuation plan, employee or
occupant support system
- internal
backup systems – communications, emergency power, recovery and support
The
equipment and systems available in a building to deal with an emergency will
vary considerably depending on the size and age of the building, the type of
occupancy and what is legally required. After determining what is currently
available, managers must also determine if additional equipment or systems
should be provided even if they are not legally required.
Identify
external resources that would be required during an emergency including
emergency protocols for contacts. These could include:
- police
- fire
department
- emergency
medical services
- community
emergency management co-ordinator
- community
social service agencies
- hazardous
materials response organization
-
transportation services
- utilities
-
Professional Engineers and Architects
-
contractors
-
suppliers of emergency equipment
NOTE:
The activation and deployment of external resources does not relieve building
owners/managers and occupants of their responsibility to provide for their own
safety in accordance with established plans during an emergency in a building.
Step
3 – Develop the Plan
The
Emergency Management Team should develop the Emergency Plan using the most
up-to-date information. Drawings, tenant information, contacts, etc.
need to be current and accurate to be useful. Elements of the plan should
include:
·
Emergency Management – outlines the following
key components:
o
a protocol for who will be in charge
o
notification and communications procedures
o
life safety elements
o
property protection
·
Incident Emergency Response – identifies the
procedures outlining how the facility and occupants will respond. This part of
the plan should also address procedures for dealing with emergencies during
peak usage periods and after hours.
o
The plan must include provision for dealing
with disabled people, both regular occupants and visitors.
o
The plan must stress that evacuating to the
roof is not an option during a fire, despite what might be seen in the media.
Suitable helicopters for this purpose are not readily available in Ontario.
Even if they were available, such a procedure is very dangerous for both the
building occupants and the helicopter crew. The thermal currents created by
the fire make the helicopter very difficult to control. The downdraft from the
helicopter rotor can force smoke and hot gases on top of building occupants or
fire personnel.
Before
finalizing the plan, it is important for building management to consult with
the local emergency response agencies (police, fire department, community
emergency co-ordinator, etc.) to ensure that the Emergency Plan is well
coordinated between all parties and coincides with local practices.
Protocols and details that need to be worked out and incorporated in the plan
could include:
·
Their emergency notification requirements.
·
The conditions where mutual assistance will
be necessary. (e.g. many nursing homes or hospitals have arrangement with
other facilities for temporary housing of occupants in the event of an
emergency.) In most cases, this will be identified by outside resources.
·
Identify primary and alternate entrances for
responding units.
·
Where and whom will they meet?
·
How will facility personnel communicate with
outside responders?
·
Who will be in charge during the emergency?
·
How will the plan be communicated to building
occupants?
Communications
At
some point during or after an emergency or disaster it will be necessary to
communicate with various groups. These could include:
·
emergency response organizations
·
employees
·
neighbours
·
media
·
government regulatory agencies
·
unions
·
elected officials
A
spokesperson, and an alternate, should be appointed to deal with the media.
This person should be a senior official in the organization and should have
training in dealing with the media.
Following are some guidelines for dealing with the media.
·
Do not allow anyone other than the designated
spokesperson to release information.
·
Do not play favourites. Give all media
access to the same information.
·
Try to have consideration for their
deadlines.
·
Be factual. Don’t speculate.
·
Do not cover-up or try to mislead the media.
·
Keep records of all information provided to
the media. Provide written press releases when possible.
·
If the media will be on the site if the
emergency/disaster, ensure that appropriate safety precautions are followed.
Step
4 – Exercise the Plan
Exercising
the plan will involve training, practice exercises and evaluation.
In single
tenant facilities, the plan should become part of the corporate policies and
be managed effectively.
In
multi-tenant facilities, the plan must be adopted by each tenant and be
integrated into the workplace procedures for occupants to follow during an
emergency incident. Key personnel in each tenant space may require
special training or instruction to ensure they can conduct the assigned
duties. Practice drills can be conducted to determine if the procedures and
the desired communications are effective.
How is the Emergency Plan
shared with the building occupants?
Once the
Emergency Plan has been developed, occupant and tenant information needs to be
provided to them so that they can become aware of the emergency procedures.
Initially,
occupants can be provided with printed instructions in a variety of formats
including: brochures, newsletters, workplace policies, workplace procedures,
etc. Many of these printed materials can be distributed to each individual and
in other instances, the Emergency Plan should be prominently placed in common
areas including lunch rooms and lounges, accessible to building occupants for
their review.
Other
methods can be used to inform and train the building occupants. These may
include:
- offering
periodic information and awareness presentations,
-
providing direct training and instruction to individuals who are assigned
special tasks,
-
producing and distributing demonstration or instructional videos.
To help
people to become familiar with their surroundings, building signage should be
used to identify areas of refuge, location of emergency equipment, exits and
evacuation instructions.
Training, Drill and Exercise Considerations
In addition
to the training, individuals have key roles to play during an emergency.
Everyone working in the facility will require some form of training to become
familiar with the established Emergency Plans. This could include distribution
of the specific procedures to each employee and occupant/tenant, periodic
discussion sessions with occupants and tenants to review the procedures,
technical training in the use of special equipment if necessary and
participation in evacuation drills intended to improve awareness of the egress
features provided in the building.
Step
5 – Test, Evaluate and Modify the Plan
The
Emergency Management Plan and procedures should be audited at least annually
and, when necessary, modified and the Emergency Plan should be reviewed:
- after
each training drill or exercise;
- after
each emergency;
- when
personnel or their responsibilities change;
- when
tenants change;
- when
layout or design changes of the facility impact on the plan or procedures;
and
- when
policies or procedures change.
Conducting Drills And
Exercises
In addition
to conducting fire drills at the frequency required by the Fire Code, it is
also necessary to periodically assess the other types emergency procedures
similarly through exercises or drills.
The purpose
of conducting drills and exercises is to:
- assess
the ongoing effectiveness of the facility’s emergency procedures given
different scenarios and make corrections where necessary;
-
determine that sufficient adequately trained people are available to respond
and carry out the activities outlined in the emergency procedures;
- ensure
that the building occupants understand how to react in accordance with the
building's emergency response and evacuation procedures; and
- provide
an opportunity for emergency response training and practice.
Consider
the following to determine if the objectives for the exercise or drill are
achieved:
- Does the
tenant management support the plan and participate appropriately in the
exercise/drill scenarios?
- Are
problem areas and resource shortfalls identified and addressed adequately?
- Does the
plan reflect lessons learned from previous drills and actual events?
- Do
individuals with specific duties specified by the procedure understand their
responsibilities? Are they willing to perform their assigned
activities? Can they perform their assigned activities? Are new
personnel with specific responsibilities adequately trained?
- Have the
risks and hazards changed in the facility or in land use around the
facility?
- Have the
key contacts changed? (names, titles, telephone numbers)
- Do
building occupants know where their primary and secondary exits are situated
in the event their normal escape route is contaminated or blocked?
- Is the
existing method of communication adequate for relaying information and
instructions to key personnel and building occupants during an emergency? If
not, should other methods of communication be pre-planned? (For example, by
private telephones, cell phones, pagers, or some other means.)
Drills and
exercises can be conducted in a number of ways. The
exercise can be used to provide additional training for designated individuals
by allowing them to become more familiar with the use of the building's safety
features and communications protocol. For example, designated individuals
responsible for communications should practise using the communication
equipment and other equipment where applicable based upon the scenario to gain
experience and confidence.
It is very
important that all personnel with specific responsibilities attend a
debriefing meeting following every drill. This meeting is held to review the
procedures and reactions of all participants. During the debriefing, problem
areas can be identified and, if necessary, solutions to overcome any
deficiencies in implementing the facility's Emergency Plan can be discussed
and corrected.
In addition
to conducting full-scale drills or exercises, smaller independent exercises
can be conducted at different times involving designated departments or
specified areas of the building on different shifts. During these
independent exercises, tenant managers, department heads, supervisors or other
designated persons monitor the emergency response of employees in a specific
area to a simulated or described emergency scenario. Employees in an
area would respond to a simulation in accordance with their emergency
procedures. These smaller independent drills and exercises provide an
opportunity for assessing the adequacy of employee emergency preparedness on
all shifts, in individual tenancies, departments or area-specific emergency
procedures.
Each drill
or exercise must be evaluated and documented with recommendations for
improvements by designated individuals who thoroughly understand the
facility’s emergency procedures and expected response by designated
individuals and occupants.
The
frequency and nature of the drills and exercises should be determined based
upon the potential risks, probable scenarios and the needs for training and
emergency preparedness assessment.
Finally,
the Emergency Plan must be readily accessible by emergency responders.
The
creation of an emergency plan is not a one-time event. It must be regularly
reviewed and up-dated to ensure that it reflects any changes to the facility
or operations. Building owners/managers need to make a special effort to
ensure that information is kept up-to-date. One of the major shortfalls
in most plans is that the drawings, tenant information, contacts, etc. are
allowed to become inaccurate as a result of changes that invariably occur.
6. Emergencies Due
to Human Activity
Emergencies
arising from human activity can include situations instigated by an
intentional criminal, human error or situations resulting from large-scale
industrial accidents.
Criminal
acts such as bomb threats have historically been one of the most common types
of threats. However, recent public concern has also focused on threats
associated with biological and chemical agents.
Accidents
that occur in industrial facilities may place neighbouring property and lives
at risk. Of particular concern are accidents that involve facilities
that store large quantities of toxic chemicals.
This
section covers the procedures that should be developed to address a major
emergency due to human activity. It provides the necessary steps that
should be taken by those who are directly responsible for building emergency
preparedness as well as information that may be useful to building occupants.
The building occupants’ roles and responsibilities should always be included
in the Emergency Plan and should be available to them as a reference.
Regardless of whether or not they have been delegated any formal
responsibilities, occupants play an integral part in effectively executing the
Emergency Plan and ensuring their own personal safety. Their role is
particularly important in buildings where delegated emergency personnel are
not available 24 hours a day, 7 days a week.
Many types
of circumstances besides fire may require a building or portions of a building
to be evacuated. Some of these circumstances are discussed in the
following subsections of the guideline.
Other types
of circumstances warranting evacuation that are not discussed in detail could
include: serious fires in a neighbouring building, a serious hazardous
chemical spill involving the transportation of a dangerous product(s), forest
fires, a large natural gas leak originating outside of the building, etc.
Usually in
these types of situations, local authorities will likely be involved in
responding to, and/or monitoring the emergency situation. Where
applicable, building management should consult with authorities to determine
an appropriate course of action. However, in some situations, a decision to
evacuate may have to be made by building management on their own without the
opportunity for consultation.
When
circumstances warrant an evacuation, the building occupants must be notified
in an appropriate manner, taking into consideration the serious nature and
urgency of the situation.
6.1 Fire / Explosion
Fire is one
of the most common risks to buildings, property and life safety. In
order to minimize the risk and impact of fire, Section 2.8 of the Ontario Fire
Code outlines requirements for owners and managers of certain types of
buildings and occupancies to develop and implement a Fire Safety Plan.
Many buildings will already have a Fire Safety Plan
approved by the local Chief Fire Official.
Buildings
are designed and constructed to confine and control a fire to allow building
occupants time to evacuate. Buildings are also designed to allow fire
department personnel time to access and gain control over the fire. Buildings
are designed for the expected fire loads they will encounter during their
lifespan. Bombs, terrorist acts or some arsons may exceed these expectations
and subject the building to fire loads for which they were not designed. For
example, a building designed to maintain its structural stability for three
hours, may fail in a much shorter period of time under these adverse
conditions.
Equipment
and procedures dealing with egress and exit facilities, fire alarm systems,
voice communication systems, fire suppression systems and other life safety
devices and features will play a major role in enhancing occupant safety in
the event of a fire and/or explosion. Property owners and managers must
ensure that these life safety features are maintained in operable condition
and ready for use at all times.
An approved
Fire Safety Plan typically contains:
a)
the emergency procedures to be used in case
of fire including sounding the fire alarm, notifying the fire department,
provisions for access for fire fighting, instructing occupants on procedures
to be followed when the fire alarm sounds, evacuating endangered occupants and
confining, controlling and extinguishing the fire,
b)
the appointment and organization of
designated supervisory staff to carry out fire safety duties,
c)
the instruction of supervisory staff and
other occupants so that they are aware of their responsibilities for fire
safety,
d)
the holding of fire drills including the
emergency procedures appropriate to the building,
e)
the control of fire hazards in the building,
f)
the maintenance of building facilities
provided for the safety of occupants,
g)
the provision of alternative measures for the
safety of occupants during any shutdown of fire protection equipment and
systems or part thereof, and
h)
instructions, including schematic diagrams,
describing the type, location and operation of building fire emergency
systems.
Even when
the building or property is not required by the Fire Code to have a Fire
Safety Plan , property management should, at a minimum, develop and introduce
emergency fire procedures for occupants and key property personnel to follow
in the event of fire.
6.2 Bomb Threats
Bomb
threats are usually made by telephone. Few of these threats are real.
Bombers that go to the trouble of manufacturing and placing a device typically
will not call in a warning.
Bombers
usually prefer to place devices in easily accessible locations (e.g., outside
of buildings, lobbies, near exits) to minimize risk of capture.
Evacuating a building without first checking these common areas may put
occupants at increased risk. Bombers have used telephone threats to herd
people towards a device.
Good
housekeeping simplifies the task of identifying suspicious packages.
Security measures make it more difficult to plant a bomb. Locking
cabinets, rooms, offices, etc. also limits unauthorized access and reduces the
areas that need to be searched.
Building
owners and managers should consider the following in establishing procedures
for this type of threat:
Who should make the
decision regarding whether or not to evacuate?
If
sufficient warning has been provided, the building owner, building manager or
other senior designated individual should make the decision whether or not to
evacuate. It is important that the primary manager and alternates
responsible for this decision are recognized by the occupants as having the
authority to make these important decisions. Their decision may be made
with advice from the police, fire department or other knowledgeable persons.
Public safety should always be the foremost consideration.
Should an evacuation occur for every bomb threat?
Although
very few bomb threats are real, it cannot be overlooked that bombs have been
located in connection with threats. If occupants learn that bomb threats have
been received and ignored, it could result in morale problems and have
long-term adverse effects. Also, there is the possibility that if the bomb
threat caller feels that they are ignored, they may go beyond the threat and
actually plant a bomb.
Evacuating
immediately on every bomb threat is an alternative that on face value appears
to be the preferred approach. However, the negative factors inherent in this
approach must be considered. The obvious result of immediate evacuation is the
disruptive effect. For example, if the bomb threat caller knows that your
policy is to evacuate each time a call is made, they can continually call and
disrupt your business. An employee, knowing that the policy is to
evacuate immediately, may make a threat in order to get out of work. A student
may use a bomb threat to avoid a class or miss a test. A bomber wishing
to cause personal injuries could place a bomb near an exit normally used to
evacuate and then call in the threat.
What evacuation
procedures should be implemented?
·
There are three options available depending on the situation:
- Complete evacuation of
the premises
- Partial evacuation to a
safe outside area or another internal area
- No evacuation
·
Where it is decided that an evacuation is necessary, ensure that
the evacuation team is in place and ready to assist occupants to safely
evacuate the building.
·
Where it is decided that an evacuation is necessary, it should
not be initiated until supervisory staff has determined that the evacuation
route has been searched and confirmed to be safe.
·
Where it is decided that an evacuation to the outside is
necessary, people should move at least 100 m away from the building (flying
glass is usually one of the key dangers in a bomb blast).
·
Where it is decided that evacuation to another internal area is
necessary, personnel should be relocated to another section or floor of the
facility.
·
Where it is decided to “shelter in place” (see Section 6.3),
this information and the rationale for this decision should be communicated to
the occupants.
What should occupants
do if they receive a bomb threat by telephone?
Occupants should follow the
bomb threat procedures set out in Appendix A.
What procedures may be
established for conducting a bomb search?
Initiating
a search after a threat is received and evacuating a building after a
suspicious package or device is found is perhaps the most desired approach. It
is not as disruptive as an immediate evacuation and will satisfy the
requirement to do something when a threat is received. If a device is found,
the evacuation can be accomplished expeditiously while at the same time
avoiding the potential danger areas of the bomb.
If the
decision is made to search the premises, the search must be as speedy and as
thorough as possible. The manner in which the search is conducted is
very important. It should always be systematic; unorganized searches may
leave areas unchecked. Effective and efficient search techniques should
be developed and made known to all relevant personnel.
Note:
Even if the decision is made to evacuate immediately, the evacuation routes
must be searched before evacuation takes place.
Who
should carry out the search?
Authorities are in agreement that the
most effective and fastest search of a building can be made by the normal
occupants of that building. The occupants are in the best position to
conduct the search because they are the only ones who will know if a box,
briefcase, etc. belongs in that location.
However, under Ontario health and
safety legislation, workers cannot be forced to take part in any activity
which could be hazardous to their health or safety. Therefore, any employees
who engage in bomb searching activities must be volunteers. They should be
provided with appropriate training in searching for bombs.
If the
facility has a public address system, it can be used to alert occupants and
teams designated to search common areas (e.g., exit pathways, lobby).
Where
should occupants search?
Each
occupant should quickly search his or her own immediate work area.
Designated
persons should search the evacuation routes and assembly areas, building
entrances and exits, public areas within buildings or other areas that are
easily accessible by intruders. Past
experience has shown that bombs are usually placed outside buildings or in
public areas within buildings. These areas must be checked with special
care.
It should
be noted that searches can be conducted more efficiently if work areas are
kept orderly and as much storage as possible is kept in locked rooms or
cabinets.
How should occupants search?
It is vital that a plan is prepared that enables the
premises to be searched as quickly and as effectively as possible.
The aim of the search is to identify any object which:
(a)
should not be there;
(b)
cannot be accounted for;
(c)
is out of place; or
(d)
becomes suspect for any other reason (e.g.
suspiciously labelled, similar to that described in the threat).
Explosives
can be packaged in a variety of containers. Most likely it will be
camouflaged. The container is likely to be a common article such as a shoe or
cigar box, a grocery bag, an athletic bag, airline flight bag, suitcase,
attaché case, etc. Look for the unusual or something that appears to be out of
place. Anything that does not belong, or whose nature and presence cannot be
adequately explained is a suspicious object.
Without planning, control and
communication, only a cursory search can be conducted. A control centre must
be established where the designated facility authorities are able to
communicate with individual searchers or search teams. Searched areas can then
be recorded as cleared and the control authority will be cognizant of
progress, problems and the location of searchers.
General
priorities for searches can be established and usually follow a sequence:
·
outside areas,
·
building entrances,
·
public areas within buildings, e.g. hallways,
washrooms and reception areas,
·
stairways and elevators,
·
interior rooms, and
·
janitor’s closets, telephone rooms etc, if
not secure.
The areas
listed above are the areas which are most accessible to the "bomber" and which
persons must pass by or through during an evacuation. The initial search of
these areas will ensure greater safety during the movement of personnel. Once
a systematic search of public areas has been conducted, the Search may expand
to the remaining areas not generally accessible to the public.
CAUTION: Searching should not be
conducted within one half-hour before to one half-hour after a detonation time
provided in a specific threat.
Should a
suspect device be discovered:
·
DO NOT TOUCH IT.
·
DO NOT ASSUME IT IS THE ONLY ONE.
·
NOTIFY THE CONTROL CENTRE IMMEDIATELY FOR
THE IMPLEMENTATION OF APPROPRIATE PROCEDURES.
A rapid two-way communication system is
of utmost importance. Normally communication between wardens, search teams and
the control center can be accomplished through the existing telephone system,
or the building's internal communication system.
CAUTION:
Use of radios or cell phones could be dangerous. Their signal could cause
premature detonation of an electric initiator (e.g., blasting cap) or
premature activation of a remote detonating device.
Blast-Resistant Precautions
The design and construction of
high-risk buildings to provide life safety in the face of explosions is
receiving renewed attention. Steps for reducing the impact of an
explosion can include introducing enhancements in structural design coupled
with a buffer zone surrounding the building.
|
For additional
information see:
“Designing Terrorist-Resistant Buildings”,
in Fire Engineering, Tod Rittenhouse, November 1995
http://www.wai.com/AppliedScience/Blast/blast-fireeng.html .
Blast Resistant Design Of Commercial Buildings
in Practice Periodical on Structural Design and Construction,
Vol. 1, No. 1., Mohammed Ettouney, Robert Smilowitz and Tod Rittenhouse,
February 1996.
http://www.wai.com/AppliedScience/Blast/blast-struct-design.html
Protecting Buildings From Bomb Damage, Transfer Of Blast-Effects
Mitigation Technologies From Military To Civilian Applications,
National Academy Press, National Research Council et. al. 1995.
http://books.nap.edu/books/0309053757/html/R1.html
Protection Of Federal Office Buildings Against Terrorism,
National Academy Press, Committee on the Protection of Federal
Facilities Against Terrorism et. al., 1998.
http://www.nap.edu/books/0309076463/html/.
Bombs, Protecting People And Property,
United Kingdom’s Home Office, 1994.
http://www.mipt.org/pdf/bombs_protectpeopleproperty.pdf
Business As Usual, Maximizing Business Resilience To Terrorist Bombings,
United Kingdom’s Home Office, 1999.
http://www.mipt.org/pdf/ukhomeoffice_businessasusual.pdf
|
6.3 Biological and Chemical
Threats
Building
owners and management should stress to occupants that removal, analysis and
decontamination are the responsibilities of hazardous materials emergency
response professionals who are trained and equipped to handle these types of
situations. Some fire departments may be able to assist with the initial
containment and decontamination of an emergency scene. However, it is the
responsibility of building owners or managers to arrange with private
companies which specialize in hazardous material handling for the complete
clean-up and decontamination of the site.
This section sets out some
basic information that may be shared with occupants. Occupants should be
warned not take any actions beyond the basic steps needed to immediately limit
the spread of these agents.
What are the
characteristics of a chemical agent?
-
Generally in liquid form and often aerosolized (fine mist).
- Has a
unique odour and colour. Common odours for chemical agents include
bitter almonds, peach kernels, fresh mown hay, mustard, onion, garlic,
geraniums or green grass.
- Most
result in immediate symptoms or are delayed for a few hours at most.
-
Inhalation is the most likely route of attacking your body.
- Attack
routes may also be through food/water contamination or skin absorption.
- Many
likely agents are heavier than air and tend to stay close to ground.
- Some
will break down fairly rapidly when exposed to sun, diluted with water, or
dissipated in high winds.
What are the
characteristics of a biological agent?
-
Generally in liquid or powder form.
- No odour
or colour.
- Symptoms
may be delayed for days.
-
Inhalation most likely and effective attack route.
- Attack
routes may also be through food/water contamination or skin absorption.
- Many
likely agents are heavier than air and tend to stay close to ground.
- Most
will break down fairly rapidly when exposed to sun, diluted with water, or
dissipated in high winds.
What are the warning
signs of a biological/chemical attack?
- Droplets
of oily film on surfaces.
- Unusual
dead or dying animals in the area.
- Unusual
liquid sprays or vapours.
-
Unexplained odours.
- Unusual
or unauthorized spraying in the area.
- Multiple
victims displaying symptoms of nausea, difficulty breathing, convulsions,
disorientation, or patterns of illness inconsistent with natural disease.
-
Low-lying clouds or fog unrelated to weather, clouds of dust, suspended or
coloured particles.
- People
dressed unusually (long-sleeved shirts or overcoats in the summertime) or
wearing breathing protection particularly where large numbers of people tend
to congregate, such as subways or stadiums).
What measures should
be taken where the release has occurred within a building?
- Immediately protect
breathing airways (distance yourself from contamination source, cover mouth
and nose with handkerchief, clothing, etc.).
- Leave the area of attack
immediately and move outside and upwind from the source of attack.
- If evacuation to the
outside is not possible, move occupants upwards to an interior room on a
higher floor since many agents are heavier than air. Measures for
“shelter in place” should be taken (see below).
- Cover bare arms and legs
and make sure any cuts or abrasions are covered or bandaged.
- If splashed with an agent,
immediately wash it off using warm soapy water.
- Shower with soap and water
as soon as possible.
- If water is not available,
talcum powder or flour may be used to decontaminate liquid agents.
Sprinkle liberally over affected skin area, wait 30 seconds and brush off
with a rag. (Note: The powder absorbs the agent, so it must be brushed off
thoroughly. Treat this powder as contaminated. If available,
rubber gloves should be used when carrying out this procedure)
- Report the incident to the
police (dial 911) and supervisory staff.
- Notify building security.
- Seek medical assistance as
soon as possible.
What
measures should be taken to “shelter in place” where outdoor airborne
contaminants may be impacting a building?
Building management should
establish procedures and provide training to have management and maintenance
staff quickly:
- Notify
occupants of the hazard and reasons to “shelter in place”.
- Seal
building so contaminants cannot enter.
o
Close windows and doors (an inventory of
openings should be available and staff designated to close or seal specific
openings).
o
Seal gaps under doorways, windows, and other
building openings (sufficient sealing materials should be kept on hand to
perform this task)
o
Turn off heating, air conditioning and
ventilation systems.
- Monitor
radio or television stations for further updates and remain in shelter until
authorities indicate it is safe to come out.
- Move occupants upwards to
an interior room on a higher floor since many agents are heavier than air.
6.4 Suspicious Package/Device
Building owners should
review mail-handling procedures. Where the risk of receiving
contaminated mail is high, they may wish to consider opening mail off site or
in locations that may be more easily decontaminated. Use of gloves and
respirators or a glove-box will also protect persons opening mail.
Personnel that work in a Mail
Room and others who accept and handle deliveries made by courier and others
should receive training on how to identify and handle suspicious packages. The
extent of this training would correspond to the degree of risk related to the
occupancy of the building. (e.g. a commercial building containing foreign
consulates would be at higher risk than a residential building.)
The following information
should be shared with occupants to assist them in identifying and responding
to suspicious envelopes and packages.
What are the
characteristics of a suspicious package?
Some characteristics of
suspicious packages/letters include the following:
- Excessive, inadequate or
missing postage
- Handwritten or poorly typed
addresses
- Incorrect titles or no name
- Misspelling of common words
- Oily stains, discolouration
or odour
- No return address
- Excessive weight
- Lopsided or uneven envelope
- Protruding wires or aluminum
foil
- Excessive security material
such as masking tape, string, etc.
- Visual distractions
- Ticking sound
- Restrictive markings such as
“Personal”, “Confidential”, or “To Be Opened By”
- Postmark city/province/state
does not match the return address
- Foreign mail from
politically unstable or hostile countries
- Unprofessional wrapping
- Threatening markings on
exterior of package
- Inappropriate air mail or
special delivery stickers
What should occupants
do if they find a suspicious package/device?
- Do not shake or bump it.
- Do not open, smell,
examine, touch or taste.
- Treat it as suspect.
·
If you suspect that the package/device is a bomb:
- Do not cover it.
- Open doors and windows to
minimize blast effects.
- If you suspect that the
package/device is contaminated with a chemical or biological agent:
- Gently place in
clear plastic bag, if available or cover with other materials.
- Close door.
- Minimize physical contact
with other people.
- Wash your hands with soap
and water.
- Remove contaminated
clothing and place in a sealed container (e.g., plastic bag) to be
forwarded to emergency responders. Shower (with soap and warm water)
as soon as possible.
- List all people who may
have been in contact or close proximity to the suspicious package/device
and provide this list to appropriate authorities.
- If necessary, seek
medical assistance as soon as possible.
·
Clear the immediate area where the package was discovered.
·
Notify supervisory staff and provide the following information:
- Object location
- Object description
- Any other useful
information
- Report incident to the
police (dial 911).
- Notify your emergency
response team (floor wardens, etc.), building management, and other building
occupants of the potential emergency.
- Attempt to establish
ownership of the object.
- If necessary, initiate
evacuation procedures.
6.5 Physical Threats
Criminals
or terrorists may use firearms, knives, arson, vehicles and other “low tech”
devices to introduce physical threats. Security measures and physical
barriers should be considered as means of preventing or minimizing the impact
of these threats and occurrences.
There have
been numerous examples of serious physical threats to injure that resulted in
actual physical injury or death, including the massacre at the École
Polytechnique in Montreal in 1989 and the Columbine School occurrence in 1999.
Well-planned and prearranged lockdown procedures may be appropriate for
application in occupancies such as schools to protect students and staff.
The lockdown practices and procedures should never interfere with the
occupants’ abilities to evacuate promptly should the circumstances warrant it.
Security
personnel, receptionists, complaints department personnel or other employees
who are in a position where they may have to deal with violent or potentially
violent people should be given training on conflict resolution and workplace
violence. Several community colleges offer this type of training.
Arson
involves the criminal use of fire to cause damage to property. Arsonists
may use various types of accelerants to increase fire growth and fire spread.
To minimize risk of capture, arsonists prefer to use readily available
accelerants, such as gasoline, that they find near their target.
Wastepaper, cardboard, etc. is also a favourite accelerant for arsonists.
Therefore, good housekeeping and security are effective at reducing these fire
risks.
6.6
Hazardous Materials Accidents
A hazardous
materials accident can occur anywhere. Buildings located near chemical
manufacturing plants are particularly at risk. However, hazardous materials
are transported on our roadways, railways and waterways daily, so any area is
considered vulnerable to an accident.
Building
management should maintain a current inventory of hazardous materials used
on-site including current Material Safety Data Sheets (MSDS) as required by
the Workplace Hazardous Material Information System (WHMIS). Appropriate
spill control and clean-up materials and equipment should be readily
available. Staff should be trained in spill clean-up procedures.
Emergency phone numbers for hazardous materials disposal companies should also
be available.
If
possible, managers should determine what hazardous materials might be present
on neighbouring properties. A risk assessment of this exposure should
also be carried out.
What
should building management do if a hazardous materials accident occurs near a
building?
- Call 911
or the local fire department to report the nature and location of the
accident as soon as possible.
- Keep
building occupants away from the accident scene.
- Do not
walk into, touch, smell or taste any of the spilled substance. Try not to
inhale gases, fumes and smoke. If possible, cover mouth with a cloth while
leaving the area.
- Try to
stay away from accident victims until the hazardous material has been
identified.
- Try to
stay upstream, uphill and upwind of the accident with clear access to an
evacuation route.
What
measures should be taken to “shelter in place”?
·
See Subsection 6.3 above.
Assisting accident victims.
- Do not
try to care for victims until the substance has been identified and
authorities indicate it is safe to treat victims.
6.7 Radiological Accidents
A
radiological accident is an event that involves the release of potentially
dangerous radioactive materials into the environment. This release will
usually be in the form of a particulate cloud or vapour plume and could affect
the health and safety of anyone in its path. In Ontario, Emergency
Measures Ontario is the provincial authority to direct a response during a
nuclear emergenc y.
Where
can radiological accidents occur?
Radiological accidents can occur anywhere that radioactive materials are used,
manufactured, stored or transported. Nuclear power generating stations,
hospitals, universities, research laboratories, industries, major highways,
railroads and shipping yards could be the site of a radiological accident.
How
can building management minimize radiation exposure to occupants in the event
of an accident?
Distance
The more
distance between occupants and the source of the radiation, the less radiation
will be absorbed. In a radiological accident, officials may evacuate,
thereby increasing the distance between occupants and the radiation.
Shielding
Like
distance, the more heavy, dense materials between occupants and the source of
the radiation, the better. This is why officials could advise building
management to “shelter in place” if a radiological accident occurs. In
some cases, building walls may provide sufficient shielding to protect
occupants.
Time
Limiting
the time spent near the source of radiation reduces the amount of radiation
you will receive. Some sources of radioactivity may be dispersed by the wind
or lose its strength by rapid decay.
Following a
radiological accident, authorities will monitor any release of radiation and
determine when the threat has passed.
What
should building management do if alerted to a radiological emergency?
Tune to
your local radio or television station for information and direction from
Provincial or community authorities. Information may also be communicated by
other electronic means (e.g. Internet)
If advised to evacuate the building,
management should:
- Organize
a calm evacuation.
- Close
and lock windows and doors.
- Turn off
air conditioning, vents, fans, and heating equipment.
- Arrange
public transportation for those who have not made arrangements.
If
occupants are to remain in the building management should advise them to:
- Follow
the “shelter in place” procedures set out in Subsection 6.3.
6.8 Carbon Monoxide
Carbon
monoxide (CO) is a by-product of the incomplete burning of fuels, including
wood, heating oil, propane, kerosene, gasoline, diesel fuel and natural gas.
All fuel-burning equipment and appliances are potential sources for carbon
monoxide. Therefore, the key to preventing exposure to this odourless,
colourless, tasteless and very toxic gas is adequate maintenance of these
appliances. Additional protection will be afforded by locating CO
detectors near these appliances. Some municipalities have bylaws that
require these detectors to be installed in buildings.
Building
owners/managers should be aware that carbon monoxide hazards could result
from:
-
Deteriorating equipment: fuel fired heating systems and appliances that are
not properly maintained.
-
Confining or enclosing fuel-fired equipment: An inadequate fresh air
supply for the safe burning and venting of exhausts.
- Dirt and
blockage (i.e. blocked chimney flue).
- Careless
use of equipment (i.e. running a vehicle engine in an attached garage).
- Using
equipment that consumes or exhausts air.
Management
should be aware of the following danger signs of CO:
- Stale,
stuffy air in your building.
-
Occupants have symptoms of CO exposure (see below).
- The
pilot light on gas-fired equipment keeps going out.
- A sharp
odour or the smell of natural gas occurs when equipment turns on.
- The
burner flames and pilot light of a natural gas furnace or other equipment
are mostly yellow, rather than a clear blue. (Note that some natural gas
fireplaces are designed to have yellow flames).
- Chalky,
white powder forms on a chimney or exhaust vent pipe or soot builds up
around the exhaust vent.
-
Excessive moisture on walls or windows in areas where natural gas equipment
is on.
- CO
detectors alarm.
What
are the symptoms of CO exposure?
Exposure to
CO can cause flu-like symptoms without a fever, including:
- Headaches
- Nausea
- Dizziness
-
Drowsiness or fatigue
- Burning
eyes
- Confusion
- Loss of
coordination
Where
occupants experience these symptoms inside a building, but feel better when
they go outdoors or away from the building, CO or other pollutants may be the
cause.
What
procedures should be followed if CO exposure is suspected?
- Evacuate
the building immediately and call 911 or your local fire department.
- Seek
medical attention for those that need help
6.9 Natural Gas Leaks
Natural gas
is colourless, odourless, non-toxic and highly flammable gas. For
safety, a smell much like rotten eggs is added to the gas to aid detection.
Because it is lighter than air it may quickly spread throughout a building.
In the
event of a natural gas leak, building management should:
·
Immediately shut off the gas at the main
valve and any secondary valves if necessary.
·
Evacuate the building.
- Instruct
occupants to not smoke or use any electrical devices, including cell phones.
- Call 911
from a phone located well away from the source of the leak.
- Call
your gas company from a phone located well away from the source of the leak.
Building
management should retain a list or drawings that identify the locations of
all gas shut-off valves, not
just the main shut-off valve locations.
6.10 Elevator Malfunctions
Building
management should ensure that elevators are properly maintained.
Elevator cars should be readily identifiable with car/shaft number on the
inside of the car.
A means of
communicating (i.e., telephone) should be provided in each elevator.
In the event
of occupants trapped in an elevator, building management should:
- Never
attempt to evacuate occupants stranded in the elevator.
- Contact
the elevator service company. Only qualified personnel should be permitted
to correct elevator malfunctions, or remove stranded occupants, as this is
highly specialized work.
- Maintain
communications with trapped occupants until they are safely evacuated to:
- assure
them that they are safe and that help is on the way.
-
caution them not to panic.
- remind
them not to try and force the elevator doors open.
- Conduct
a thorough investigation of the cause immediately after the incident.
6.11 Medical Emergencies
Every
building runs a risk of facing a medical emergency. However, there are
certain types of properties where medical emergencies may be more common.
Examples include properties that house senior citizens, the disabled, large
public gatherings, and industrial activity. Your Emergency Plan should
incorporate medical and first aid procedures that include:
-
Emergency contact phone numbers.
- Names
and phone numbers of occupants with accredited training in lifesaving
techniques.
In Ontario,
the Workers Safety and Insurance Board (WSIB) requires first aid stations in
workplaces. Specific requirements can be found in RRO 1990, Regulation
1101. This regulation also requires first aid training for workplaces.
Managers of
buildings with large occupant loads may wish to consider providing CPR
training, automatic external defibrillators and medical oxygen in addition to
the basic first aid requirements.
7. Emergencies Due
to Natural Disasters
Emergencies
due to sudden and powerful natural events are capable of inflicting
considerable damage to property and placing many lives at risk. These
types of emergencies generally result from severe weather conditions or
earthquakes. Subsequent flash floods that may follow can result in
further property damage and risk to lives.
This
section covers the procedures that should be taken in the event of a major
emergency due to natural disasters. It provides the necessary steps that
need to be taken by those who are directly responsible for building emergency
preparedness as well as by the building occupants. The building
occupants’ roles and responsibilities should always be included in the
Emergency Plan and be available to them as a reference. Regardless of
whether or not they have been delegated any formal responsibilities, occupants
play an integral part in effectively executing the Emergency Plan and ensuring
their own personal safety. Their role is particularly important in
buildings where delegated emergency personnel are not available 24 hours a
day, 7 days a week.
Many types
of circumstances besides fire may require a building or portions of a building
to be evacuated. Some of these circumstances are discussed in the
following subsections of the guideline.
Other types
of circumstances warranting evacuation and not discussed in detail could
include: serious fires in a neighbouring building, a serious hazardous
chemical spill involving the transportation of a dangerous product(s), forest
fires, a large natural gas leak originating outside of the building, etc.
Usually in
these types of situations, local authorities will likely be involved in
responding to, and/or monitoring the emergency situation. Where
applicable, building management should consult with authorities to determine
an appropriate course of action. However, in some situations, a decision to
evacuate may have to be made by building management on their own without the
opportunity for consultation.
When
circumstances warrant an evacuation, the building occupants must be notified
in an appropriate manner, taking into consideration the serious nature and
urgency of the situation.
7.1 Earthquakes
The seismic
activity level in Ontario is generally well below what is experienced along
Canada’s west and east coast. Historically, areas along the Ottawa River
and the St. Lawrence River have been the most active within the Province.
Over the past 30 years, this area has averaged 15 earthquakes per year with a
magnitude of 2.5 or higher. By comparison, an annual average of only 2
or 3 earthquakes of this size occur in Southern Ontario. Northern
Ontario has even lower seismic activity, averaging 1 or 2 earthquakes over
this period.
Nevertheless, going further back in history, earthquakes with a magnitude in
excess of 5 have been experienced in Ontario. As well, Ontario has felt
the effects of earthquakes originating from nearby Provinces and States.
Therefore, some consideration should be given to preparing for such an event.
Building management should:
- Warn
occupants to expect that the fire alarms and sprinklers will go off during
an earthquake.
- Instruct
occupants that it is very dangerous to try to leave a building during an
earthquake because objects can fall on occupants. Many fatalities occur when
people run outside of buildings, only to be killed by falling debris from
collapsing walls and broken glass. Occupants are generally safer to
stay where they are until the earthquake is over.
- Evacuate
occupants once the shaking has stopped. Occupants should be evacuated
using the stairs and moved quickly away from the building to prevent injury
from falling debris.
- Call
emergency services, as appropriate, and then give first aid as necessary.
Do not try to move seriously injured people unless they are in immediate
danger of further injury.
- Put out
small fires quickly if this can be done without endangering personnel.
This will prevent fires from spreading until firefighting resources become
available. Fire is the most common hazard following earthquakes.
- Clean up
flammable liquid spills immediately.
- Warn
occupants of fallen power lines and other hazards.
-
Arrange for qualified people to inspect the building for damage that may
have occurred.
7.2
Severe Storms
Thunderstorms, tornadoes, hail, blizzards, ice storms, high winds and heavy
rain can develop quickly and hit hard, posing a threat to life and property.
Some problems cannot be prevented. High winds will topple trees and heavy
rains will cause rivers to flood. But some damage can be avoided or at least
reduced, if precautionary measures are taken, such as knowing the type of
storms common to your area and what time of year they are likely to strike.
How
will building management know if a severe storm is approaching?
Environment
Canada monitors the weather 24-hours a day, seven days a week. If a severe
storm is on the horizon, the weather service issues watches, advisories and
warnings through national, regional and local radio and television stations,
and Environment Canada’s Weatheradio.
If a
weather warning is issued for a tornado, it means that one or more tornadoes
have been observed or are forecast for the specified area. Other warnings
include those for a severe thunderstorm, blizzard, ice storm, high winds,
heavy snow, snow squall, heavy rain and heavy freezing rain.
How can building
management prepare for a severe storm?
Storms such
as tornadoes often strike too quickly to allow management to provide
instructions to occupants at the time they occur. Occupants must be
instructed as to correct procedures in advance. For example, storms that
are accompanied by high winds would require occupants to retreat to interior
spaces away from windows.
Management
should be aware that electrical power might be unavailable for an extended
period of time. Therefore, backup generators and adequate fuel supplies
may be very helpful in maintaining essential building services (e.g.,
heating). After a severe storm, it may be necessary to obtain the
services of qualified personnel to inspect the building for damage that may
not be readily identified.
For
additional information on maintaining business continuity, see Appendix B.
7.3 Floods
Building
management should assess the threat of flooding to their building.
Usually this is easily accomplished due to a history of similar earlier
events. Alternatively, they can contact the local municipal planning
office for flood information. Many insurance companies also have information
on the potential for flooding in specified areas.
Where
flooding is a potential risk, building management may wish to consider the
following:
-
Providing pumps, generators, sandbags, etc., for
temporary flood relief.
-
Providing permanent breakwaters and dikes where the flood
potential is high.
-
Evaluate the potential impact on ground level and
underground tanks.
-
Hazardous materials stored at or below grade moved to a
safe location.
-
Protection of drinking water sources.
-
Impact of floodwater on high value and process equipment.
-
Electrical hazards that may be created due to the
presence of water (to both permanent and temporary wiring).
-
Affect of flooding on the structural integrity of the
building.
-
Retain a list of qualified personnel and contractors who
can be contacted to assess and repair flood damage.
·
Arrange to have drinking
water tested after a flood. This is particularly important in areas where
drinking water is obtained from wells.
7.4 Major Electrical
Power Failures
Any one of
the occurrences described previously can cause or contribute to a major
electrical power failure.
Backup
generators and adequate fuel supplies may be very helpful in maintaining
essential building services (e.g., lighting, heating). In buildings
equipped with an emergency power generator, the equipment is required to be
tested and maintained in accordance with the Ontario Fire Code.
Pre-arrangements should be made to ensure additional fuel supplies could be
made available upon demand, in situations where the power failure is for an
extended period of time.
In
buildings that are not equipped with an emergency power supply, building
management and occupants need to be prepared in advance to cope with such a
situation by having flashlights and a fresh supply of batteries.
When there
is a potential for a power failure occurring simultaneously with the building
evacuation, building occupants should avoid using the elevators as a means to
leave the building. To be on the safe side, people should be instructed
to proceed to evacuate the building promptly using the primary and secondary
exits that would normally be used to evacuate the building during a fire.
In large buildings, it may be necessary to stage the evacuation in order to
ensure that it is conducted in an orderly manner.
7.5 Roof Collapse
Buildings may experience roof
collapse resulting from environmental occurrences such as high winds,
tornados, snow, water and ice loading, to list a few.
Building owners and property
managers should be aware of the potential for roof failure resulting from
these effects. Where wind and snow-loading information is not available
for the existing structure, property management should consult with a
professional engineer and /or architect to assist in analyzing the integrity
of the existing structure.
Based upon information of this
nature, tolerable and un-tolerable wind and snow loading conditions can be
identified. Procedures can be adopted that would identify conditions
when unsafe loads may be experienced and incorporate safe practices for
reducing excessive snow and ice loads.
When intolerable conditions
are expected or imminent, evacuation may be appropriate.
Appendix A:
Threatening Call Telephone
Procedures
- Be calm and courteous.
- Do not interrupt the
caller.
- Keep caller on line as long
as possible.
- Obtain as much information
as you can by completing the Threatening Call Information Report (see
following page). A copy of this report should be kept at the
switchboard, reception areas and all workstations.
- After the caller hangs up,
initiate call trace action, if available. Note that some areas have a
*57 or *69 or call display features on their telephone.
- Notify the appropriate
supervisory staff member and provide him/her with the completed
Threatening Call Information Report.
- Report incident to the
police (dial 911).
- Notify your emergency
response team (e.g., senior management, floor wardens), building management,
and other building occupants of the potential emergency.
- If necessary, initiate
evacuation procedures.
Threatening Call Information
Report |
|
|
Name of Employee
|
Section
|
|
Telephone line call received on
(
) |
Extension
|
Time call received
|
Time call ended
|
|
Exact words of caller (continue
on back of form)
|
|
|
Background noise of
Call
|
|
aircraft |
bar
sounds |
children
crying |
machinery |
music |
|
traffic |
trains |
voices |
other(indicate)
|
Questions to ask
|
|
Type of threat (What is it?)
|
What time will it go off?
|
|
Description of threat (What
does it look like? Where is it?)
|
|
Reason for phoning you (Why did
you call me?)
|
|
Reason for planting item (Why
did you plant the bomb?)
|
|
Name of Caller (Who are you?)
|
Gender of Caller
Male
Female |
|
Approximate Age of Caller
|
Accent of Caller
|
State of Caller
|
|
Calm |
Cool |
Crying |
Drugged |
|
|
Emotional |
Excited |
Immature |
Intoxicated |
Irrational |
Manner of Speech of
Caller
|
|
Defective |
Fast |
Frightened |
Lisping |
|
|
Obscene |
Polite |
Slow |
Stuttering |
Vulgar |
|
Was the caller’s voice
familiar?
|
|
No |
Yes |
Name/Identity of caller
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
Appendix B:
Business Continuity Planning
Why should a business
have a plan for emergencies?
Part of the
emergency planning for any organization should include ensuring the ability of
the organization to continue to function with the minimum of disruption after
a disaster. In the context of business continuity planning, a disaster is any
event that could cause a period of total or partial interruption to normal
business operations. This could be a fire or explosion or could be a much less
dramatic event such as loss of power or telephone service. With the increasing
emphasis in industry on maintaining low inventories and “just in time”
delivery schedules, even short interruptions can have a significant effect on
business.
In addition
to the direct costs resulting from an incident, such as damage to the building
or equipment, there are also many indirect costs. These could include loss of
important data or business records, negative media coverage, loss of market
share, dissatisfied customers or clients or legal action by regulatory
agencies. Insurance may partially compensate for some of the direct costs, but
it will never cover all of the costs to an organization. It may also take many
months or even years before the insurance claim is settled.
Although
developing a business continuity plan does require some expenditure of time
and financial resources, this expenditure should be looked at as an investment
rather than as an expense. In the long term, an effective continuity plan can
save an organization a great deal of money and emotional stress.
How
should a business continuity plan be developed?
It is
essential that senior management support the development of the continuity
plan. Although outside consultants can assist in the preparation of a plan,
managers from all departments in the organization must also be involved. They
are intimately familiar with the operations and functions of the organization
and are most likely to be aware of any weaknesses or vulnerable areas.
The first
step in developing a continuity plan is to assess the various risks to which
the organization might be exposed. These could include, but are not limited
to, any of the following:
- fire
(both internal and external), explosion,
- flooding
(both internal and external),
-
earthquakes, tornadoes, hurricanes, snow or ice storms, high winds,
-
interruption or failure of electrical power, natural gas, water supply,
telephone service, heating or ventilation,
- gas
leaks, chemical spills (both on and off-site),
- computer
failure,
- criminal
acts such as bomb threats, biological or chemical contamination,
robbery, vandalism, civil unrest, and
- death,
injury or serious illness of key management or technical personnel.
After
determining what risks need to be considered, each risk must be evaluated to
determine the probability that it will occur and what impact it would have on
the organization. The probability of occurrence and the impact can be assigned
point values or just a more general rating of high, medium and low. This will
allow management to determine how much resources should be expended in
guarding against the various risks.
Management
then needs to develop strategies for addressing each of the risks. The first
goal is to prevent the risk from occurring. Since not all risks can be
prevented with 100% certainty, the second goal is to minimize the impact on
the organization if the event does occur. At all times the safety and
protection of employees must be the primary consideration.
How should the plan be
communicated?
The plan
must be in writing and every person who could be expected to exercise any part
of the plan must have a copy. New employees must be made aware of their
role in exercising the plan. Careful consideration should be given to
the release of confidential and sensitive information in the plan.
The
president, plant manager, etc. may not be available at the time an incident
occurs and someone else may have to start exercising the plan. At least one
copy should be kept off-site and well as a back-up copy of any data or
information which is critical to the operation of the organization. Prior
arrangements should be made with outside agencies or companies such as the
Public Utilities Commission, private contractors, structural engineers,
plumbers, electricians, fire restoration companies, etc. whose assistance may
be required to normal operations. The plan should include phone numbers where
critical people can be reached 24 hrs/day.
What equipment and
supplies are needed to support the plan?
The plan
should include provision for maintaining an adequate supply of emergency
supplies, such as chemical spill kits, and that all emergency equipment, such
as generators or fire pumps, is maintained and tested as required. Some events
may need to be simulated to ensure that all equipment and procedures work as
intended. This is particularly important where there are sophisticated
automated systems such as smoke control systems or systems for shutting down
industrial processes. When conducting simulations, care must be taken to
ensure that a simulated disaster does not become a real disaster.
Does the plan need to
be changed from time-to-time?
The
creation of a business continuity plan is not a one-time event. It must be
regularly reviewed and up-dated to ensure that it reflects any changes to the
facility or operations.
Appendix C:
Committee to Develop Emergency Guide
|
FIRE
and EMERGENCY SERVICES |
|
Ontario Municipal
Fire Prevention Officers Association |
|
Fire Fighters Association of Ontario |
|
Toronto Fire Services |
|
Ontario Association of Fire Chiefs |
|
Durham EMS & Ontario EMS Director & Managers |
|
Municipal Fire Service Instructors Association |
|
Ontario Municipal Fire Prevention Officers Association |
|
POLICE SERVICE |
|
Ontario Provincial Police |
|
Toronto Police Service |
GOVERNMENT
|
|
Ministry of the Solicitor General: Office of the Fire Marshal, Emergency
Measures Ontario, Policing Services, Communications Branch |
Ministry of Health
|
|
Ministry of Labour |
|
Management Board Secretariat |
|
National Research Council of Canada - Fire Risk Management Program
|
|
BUILDING OWNERS AND MANAGERS |
|
Building Owners and
Managers Association (BOMA) |
|
Greater Toronto Apartment Association |
|
Canadian Institute of Public and Private Real Estate Companies (CIPPREC) |
|
Ontario Association of Architects |
|
INSURERS |
|
Insurance Bureau of Canada |
Appendix D: Abbreviations
ATF
Bureau of Alcohol, Tobacco and Fire Arms - U.S. Department of the
Treasury
ATSDR
Agency for Toxic Substances and Disease Registry,
U.S. Department of Health and Human Services
CANASA
Canadian Alarm and Security Association
CMHC Canadian Mortgage and Housing
EMO
Emergency Measures Ontario
ESA
Electrical Safety Authority
FEMA
Federal Emergency Management Agency
HAZMAT
Hazardous Materials
MSDS Material Safety Data Sheet
NFPA
National Fire Protection Association
NRC
National Research Council
OFM
Office of the Fire Marshal
OSHA
Occupational Safety and Health Administration , U.S. Department of Labor
TSSA
Technical Standards and Safety Authority
Ontario