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Transforming Canada’s Indigenous Fire Service Indigenous Federal Fire Marshal Research Project March 31, 2017

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Transforming Canada’s Indigenous Fire Service

Indigenous Federal Fire Marshal Research Project March 31, 2017

Acknowledgements The AFAC Board of Directors would like to acknowledge the support and engagement of the provincial, territorial and federal fire marshals and fire commissioners and their staff who participated in the Indigenous Federal Fire Marshal research project;

• Gordon Anderson, British Columbia Fire Commissioner

• Dennis Berry, Assistant Deputy Minister, Department of Community Services

• Douglas Browne, New Brunswick Fire Marshal

• Chucker Dewar, North West Territory Fire Marshal

• LCol A. L. (Lee) Goodman, CD, PEng Canadian Forces Fire Marshal

• Benoit Laroche Director of Operations - Quebec

• Duane McKay, Saskatchewan Fire Commissioner / Director Protection and Emergency Services

• Ross Nichols, Ontario Fire Marshal & Chief of Emergency Management

• James Patterson, Yukon Territory Acting Fire Marshal

• Harold Pothier , Nova Scotia Fire Marshal,

• Robert Prima, Nunavut Fire Marshal

• Dave Rossiter, Prince Edward Island Fire Marshal

• Dave Schafer, Manitoba Fire Commissioner

• Derek Simmons Newfoundland & Labrador Fire Commissioner

The project and research would have not come to fruition without the engagement and commitment of the project and survey team;

• Arnold Lazare (AFAC President)

• Richard Kent (AFAC Vice President)

• Jerry Anilniliak (AFAC Director – Nunavut)

• Blaine Wiggins (AFAC Executive Director)

• Jeremy Parkins (Chippewas of Rama Fire Department)

• Sheldon Guertin (Kamloops Fire Department)

Our National Fire Service Partners;

AFAC continues to work closely with our national fire service partners including the Canadian Association of Fire Chiefs, the Council of Canadian Fire Marshals and Fire Commissioners and the National Fire Prevention Association.

We appreciated the attached letters of support sent to Minister Bennett supporting the creation of an Indigenous Fire Marshal.

Our collaboration with Indigenous and Northern Affairs Canada (INAC);

AFAC has continued to work with INAC to enhance fire safety for First Nations communities across Canada. We would like to thank Minister Bennett and her staff at INAC for the commitment and support of AFAC, an Indigenous organization working for all First Nations, on this and many other initiatives that will improve public safety on reserves across Canada.

March 17, 2017 The Honourable Carolyn Bennett, P.C., M.P. Minister of Indigenous and Northern Affairs Terrasses de la Chaudière 10 Wellington St, North Tower Gatineau, Quebec K1A 0H4 Dear Minister Bennett, The Canadian Association of Fire Chiefs (CAFC) is proud to support the creation of an indigenous Fire Marshal position which we understand to be currently under consideration. Should there be any assistance CAFC could offer with the development of an indigenous Fire Marshal’s office we would be more than pleased to do so. Founded in 1909, CAFC is an independent, non-profit organization with a voluntary membership representing approximately 3,500 fire departments across Canada. CAFC’s mission is to Connect Canada’s provincial, territorial and allied associations and external stakeholders for the advancement of public and fire fighter safety. CAFC represents the three major types of Fire Departments in Canada: full-time, volunteer and composite, including indigenous community departments. CAFC’s governance includes a National Advisory Council comprised of Fire Chief Provincial and Territorial Associations as well as the:

• Council of Canadian Fire Marshals and Fire Commissioners • Aboriginal Firefighters Association of Canada • Department of National Defence • Canadian Volunteer Fire Services Association • Canadian Metro Chiefs • Canadian Fallen Firefighters Foundation

CAFC fully supports the Aboriginal Firefighters Association of Canada in achieving their goal of establishing a standardized associated body to improve public safety, fire service training, fire prevention and all aspects of fire service within First Nations communities. As well, CAFC fully supports you in this endeavor and are willing to provide any assistance required in the implementation of this public safety service. If you have any question or would like to meet to discuss further, please do not hesitate to contact me. Sincerely,

Fire Chief Ken Block President, Canadian Association of Fire Chiefs cc: Fire Marshal David Rossiter, Council of Canadian Fire Marshals and Fire Commissioners Commissioner Richard Kent, Aboriginal Firefighters Association of Canada

COUNCIL OF CANADIAN FIRE M ARSHALS AND FIRE

COM M ISSIONERS

CONSEIL CANADIEN DES DIRECTEURS PROVINCIAUX ET

DES COM M ISSAIRES DES INCENDIES

March 14, 2017 Honorable Carolyn Bennett Minister of Indigenous and Northern Affairs Canada Terrasses de la Chaudière 10 Wellington, North Tower Gatineau, Québec, K1A0H4 Minister Bennett, The Council of Canadian Fire Marshals and Fire Commissioners (CCFMFC) wishes to applaud you on your recent interest in the creation of an indigenous Fire Marshal’s office. Our council is happy to provide what resources we can to assist in the development of this proposal. This objective aligns with our goal in working together to protect all Canadians from the hazards associated with fire. CCFMFC is a recognized and trusted source of national leadership and knowledge for fire safety issues across Canada. Our council is comprised of a leading fire official from each province and territory. Council promotes common fire prevention strategies and initiatives through legislation, policy, oversight, standards, and public fire safety messaging. The Council also support the professional and operational development of our constituent fire services by providing a forum for exchange of fire safety information. The members of the CCFMC are also responsible for the compilation of fire incident data in accordance with their respective provincial and territorial legislation. Further, we individually develop provincial statistics based on this information to identify trends of fire causes for the purposes of developing fire prevention strategies to minimize the frequency and severity of said fires. Indigenous communities face a multitude of unique challenges with respect to fire prevention and response. Many indigenous communities in Canada do not fall under the legislative mandates of their provinces. Consequently, these communities lack the equivalent oversight that is given to their non-indigenous counterparts. We believe the creation of an indigenous Fire Marshal can bridge this gap, and this process could be expedited by working cohesively with our council and our members.

The CCFMFC has been coordinating with the Aboriginal Firefighter Association of Canada (AFAC) and participating in their provincial and territorial surveys. We observe the obstacles that they face, and support them in their service of indigenous Canadians. It is in our opinion that the development of an indigenous Fire Marshal’s office will assist the AFAC in meeting their goal of establishing a standardized associated body of First Nations fire officials improving public fire safety, fire prevention, fire suppression training, and all aspects of fire service organization within First Nations. We are encouraged that consideration is being given regarding the creation of this office for First Nations by your department. You have our full support in this endeavour; we would be pleased to provide whatever assistance we can in the review, development, and implementation of this public safety service. We hope that together we can bolster fire services to indigenous Canadians. If you have any questions please feel free to contact me at any time at [email protected], Tel (902)368-4869, PO Box 2000, Charlottetown, PE, C1A7N8. Sincerely

Dave Rossiter GIFireE, CFO, CFEI Fire Marshal, Province of Prince Edward Island President, CCFMFC cc Blaine Wiggins, Aboriginal Firefighters Association cc Ken Block, President of the Canadian Association of Fire Chiefs

Table of Contents 1 - Executive Summary ........................................................................................................... 1

Introduction .................................................................................................................................................................... 1Executive Summary of IFFM Programs and Services ................................................................................................. 2

2 - Recommended IFFM Programs ........................................................................................ 3Overview ........................................................................................................................................................................ 3Program Reviews and Strategic Priorities .................................................................................................................... 3National Incident Reporting System ............................................................................................................................ 5Fire Investigations ........................................................................................................................................................... 6Fire Inspections ............................................................................................................................................................... 7Training ............................................................................................................................................................................ 9Public Education and Fire Life Safety ........................................................................................................................ 10Research and Evaluation ........................................................................................................................................... 11

3 - Adjunct Recommendations ............................................................................................ 13First Nations Fire Protection Legislation ...................................................................................................................... 13

4 - Essential Principles for an Effective Indigenous Fire Service ........................................ 15Project Guiding Principles ........................................................................................................................................... 15What is the Fire Service? ............................................................................................................................................. 16

Protection and Rescue Services ...................................................................................................... 17Jurisdiction .......................................................................................................................................... 18Regulatory or Legislated Components ........................................................................................... 18Related regulations ........................................................................................................................... 18

Development of Indigenous Fire Services ................................................................................................................ 195 - Priority NFPA Codes and Standards ................................................................................ 21

Guiding Codes ............................................................................................................................................................. 22NFPA 1: Fire Code .............................................................................................................................. 22NFPA 72: National Fire Alarm and Signalling Code ....................................................................... 22NFPA 101: Life Safety Code .............................................................................................................. 23

Fire Risk Assessments .................................................................................................................................................... 23NFPA 551: Guide for the Evaluation of Fire Risk Assessments ........................................................ 23NFPA 1300 - Standard on Community Risk Assessment and Community Risk Reduction Plan Development ..................................................................................................................................... 24

Fire Investigations ......................................................................................................................................................... 24NFPA 921: Guide for Fire and Explosion Investigations .................................................................. 24

Fire Service Management .......................................................................................................................................... 25NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments ...................................................................................................................................... 25NFPA 1730: Standard on Organization and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations ................ 25

Plan Review .................................................................................................................................................................. 26NFPA 1730: Standard on Organization and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations ................ 26

Training .......................................................................................................................................................................... 27NFPA 1001 Standard for Firefighter Professional Qualifications .................................................... 27

Equipment Standards .................................................................................................................................................. 28Other NFPA standards for consideration .................................................................................................................. 29

6 - AFAC Strategic Priorities .................................................................................................. 30Fire Prevention .............................................................................................................................................................. 30Legislative Standards .................................................................................................................................................. 31Fire Service Operations Standards ............................................................................................................................. 32National Coordination for Indigenous Fire Service and Emergency Services ...................................................... 33

7 - Appendices ...................................................................................................................... 34Glossary ......................................................................................................................................................................... 35

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1 - Executive Summary

Introduction The Aboriginal Firefighters Association of Canada (AFAC) is committed to the transformation of fire and emergency services for all First Nations communities across Canada.

The overarching goal for all fire service agencies, whether municipal, provincial or federal, is to eliminate loss of life and loss of property. Our organization is dedicated to eliminating the loss of life and property in

First Nations communities.

When Indigenous communities experience a horrific fire event with loss of life or critical infrastructure, the media highlights both the event and status of fire protection. This usually invokes public outcry and political responses from all political entities. All responses usually proclaim that First Nations communities need and deserve the same

standard of fire service that is afforded to non-First Nations communities, despite continued incidents a solution has not been identified and implemented.

To support a strategic and analytical approach to improve fire life safety (and associated statistics) for First Nations communities AFAC defined and adopted four key priorities in 2014 that will support the transformation of Indigenous fire services. This strategic approach enables First Nations communities to consistently close the fire service gap to that of non-First Nations communities and ultimately reach comparable service level. In order to achieve tangible results in all four areas AFAC continues to work in collaboration with federal and provincial governments, national fire service organizations and other First Nations organizations.

“Fire Prevention and Life Safety is binary, you are either all in or out, there is no in between.” Dennis Berry - Yukon A.D.M.

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The National Fire Protection Strategy 2015 - 2020, adopted in collaboration between AFAC and Indigenous and Northern Affairs Canada (INAC), is essentially the strategic priorities developed by AFAC. As a direct result of this ongoing collaboration, INAC engaged AFAC to perform research with the focus question: What programs and services should an Indigenous Federal Fire Marshal (IFFM) service offer?

The research analyzed current provincial and territorial fire marshal and fire commissioner programs and services to identify the programs and services that should form the basis of an IFFM service. Additional factors considered included:

• Centre on immediate gaps that are causing loss of life and property in First Nations communities.

• Address the current gaps in capacity to enable First Nations communities to perform all the roles of a robust fire service.

• Implement immediate alternatives to address legislation gaps in the area of building and fire codes.

• Draw upon the progress made in the mainstream fire service and identify how to effectively adapt and implement in First Nations communities.

• Examine how advancements in construction fire safety and fire life safety practices can be applied to the Indigenous Fire Service.

• Ensure that the IFFM program is adequately financed, empowered and monitored for effectiveness and efficiency.

Executive Summary of IFFM Programs and Services

Subsequent sections provide detailed information, the summary recommendations include:

• Creation of the Indigenous Federal Fire Marshal service.

• Develop and implement a National Incident Reporting System.

• Implement Fire Life Safety and Public Education programs.

• Define and support National Fire Service Training standards.

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2 - Recommended IFFM Programs

Overview The project scope was to perform relevant research to define the programs and services that an IFFM should offer. The research comprised online surveys and in person interviews, quantitative and qualitative analysis, and industry consultation. The mechanism for delivery of service was not a component of this project but will be defined through a joint INAC and AFAC evaluation.

The programs and services are grouped in the following categories:

• Program Review and Strategic Priorities.

• National Incident Reporting System.

• Fire Investigations Services.

• Fire Inspections Services.

• Training Programs and Services.

• Research, Code Reviews and Policy Development Services.

Program Reviews and Strategic Priorities

As the IFFM’s programs and services are implemented, and relevant community capacity develops or is enhanced a robust and ongoing review process will be needed to ensure that the programs and services can adapt along with momentum. For example:

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• Strategic Plan – Developing and implementing a three-year rolling strategic plan that will provide medium term strategic direction to support the overall priorities, resources and scope of the organization.

o Smoke Alarms – Installation of smoke alarms in all residential homes and outside of any sleeping quarters meeting regulatory standards and requirements in established provincial and territorial legislation. In addition to being an essential fire life safety strategy this is a critical area to perform ongoing program review until this benchmark is addressed through legislation, regulations or successful program implementation.

o Advisory Committee – Formation of a National Advisory Committee that would provide strategic advice on long-term objectives of the IFFM. Suggested membership to include First Nations Fire expertise and practitioners, First Nations Governance, National Fire Service Expertise, First Nations Housing representatives and INAC Senior Policy Specialists.

• Annual program review – Implementation of annual reviews of programs and services to measure efficiency and effectiveness of each program against stated strategic priorities identified in the strategic plan. Using key performance indicators, Advisory Committee and program deliveries will provide minimal review structure components.

• Requests for Services – Ad-hoc requests for services need to form an ongoing component of the IFFM scheduled workload. As First Nations communities engage with the programs and services there will be emerging governance and infrastructure requests that will rely on the expertise offered by an Indigenous Federal Fire Marshal. The ongoing requests for services should be monitored and may form part of emerging services or program specific programs offered by an IFFM.

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National Incident Reporting System

An essential foundation for the management of fire service and fire prevention is a robust National Incident Reporting system.

While reporting of incidents did occur previously, the data elements utilized were intended for capital management asset tracking (as required by INAC policy) and limited only to INAC funded capital assets. This meant that the data captured was of limited use in a fire service context.

Data elements of a National Incident Reporting system should include:

• Community Data – Basic community information including location, tribal affiliation, geographic access, contact information, basic community risk assessment information, basic fire service information, applicable Emergency Management Office information, fire bylaws, demographic and infrastructure data.

• Fire Service Data – For communities that choose to utilize an integrated administrative system to manage their fire service, data management can include mutual aid agreements, capital asset management, equipment maintenance schedules, training schedules, fire flow testing, fire underwriter surveys and associated fire service programs.

• Incident Reporting – Development and implementation of a national standard for incident reporting, robust data submission and data management.

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• Fire Investigation – Depository for fire investigation reports meeting incident investigation data collection threshold.

• Inspection – Inspection management system utilized for capital asset inventories, schedule maintenance, deficiency reporting, action follow up, occupation loads and building type.

• Training Records – Training records management system to monitor, schedule, record and substantiate required training.

Fire Investigations

It is recommended that the IFFM develop the infrastructure and personnel for deployment to perform fire investigations and reporting of fire cause and determination for First Nations communities when required.

• Fire Investigation Response - Develop two or three fire investigation units that can be deployed by land or air to lead or assist with fire investigations when required. Define a minimal standard that would initiate a fire investigation including loss of life, injury, loss of major infrastructure, requests for joint or task force investigations and fire anomalies that require investigation services. Utilizing the National Incident Reporting System, cause and determinations will be reported and addressed in public education training, inspections and fire training.

• Equipment and Training - Recruit and train (or maintain on call fire investigators) fire investigators. Acquire and equip vehicles for fire investigation and prolonged fieldwork. Acquire fire investigation

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equipment including the capacity to utilize commercial air transportation to deploy available staff across Canada or to rural and remote locations.

• Fire Investigation Advisory Support – Develop collaboration agreements with provincial, territorial and federal agencies including police, coroner, wildland and Department of National Defence (DND) to respond to lead or assist as required.

• Fire Investigation Liaison and Task Force Assignment - Develop collaboration agreements with provincial, territorial and federal agencies to join and integrate with task forces as required.

• Fire Investigation Training – Develop minimal certified training standards and competency maintenance programs including report writing, fire science research, fire investigations and Personal Protective Equipment (PPE) utilization.

Fire Inspections

Inspection programs are fundamentally in place to support communities to meet or exceed fire life safety codes, incorporate fire safety and response in new building design and support the full life of the capital investment.

• Plans Examination - Adopt a standard for plans examination and recruit and train staff to acquire plans examination certification. Incorporate plans examination into report management system. Promote the use of plans examination to all communities before commencing capital infrastructure projects.

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• Building Construction Inspections – Working with the First Nations Building Officers Association (FNBOA) adopt a standard for building inspections that can incorporate various building codes. The standard should incorporate current INAC policy regarding infrastructure and progressive inspections that monitor all phases and components of construction such as foundation, framing, electrical, plumbing, insulation, heating and ventilation systems, exterior and roofing.

• Public Buildings Inspections and Scheduling Cycles – Develop a minimal standard for public and business inspections that incorporates (at minimum) annual inspections, compliance and associated legislated standards such as schools act and occupational health and safety, etc. Recruit and train staff to acquire inspection certification. Incorporate inspections into report management system. Adopt processes that will support the building codes established by each community.

• Inspection Training - Develop minimal certified training standards and competency maintenance programs including certification acquisition, report writing, fire science research, evolving codes and PPE utilization (respirators, safety equipment, fall arrest, confined space, etc.). Additional support for maintenance of professional development and inspection reporting for required three-year recertification process.

• Inspection Advisory Support – As inspections and plans examination are closely tied with a multitude of other industries and evolving science it will be essential to have access to the National Advisory Committee to support the program through industry evolution.

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Training

As a national entity the IFFM will focus on defining training standards and gaps. They will deliver training programs as required. Many jurisdictions have established training programs and delivery agencies such as public and private training institutions. Where possible and feasible the IFFM will collaborate with existing fire marshal training programs and utilize recognized training programs to focus on meeting established standards.

Specific IFFM training activities will include:

• National Training Standards – Develop a national fire service training standard for all areas of the fire service including suppression, investigation, inspections, public education and administration.

• Training Branch – Form a business unit that oversees the training standards, collaboration with other training organizations, curriculum development and training delivery as required.

• Training Organizations – Pursue collaboration agreements with Provincial Fire Marshal and Fire Commissioners and Public College Training organizations that have established training frameworks which meet or exceed the identified national training standard.

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Public Education and Fire Life Safety

The IFFM program should include a business unit that oversees the research, collaboration, training standards, curriculum development and public education delivery.

Prevention program areas include:

• Procurement and distribution of Fire Prevention education material.

• Fire Prevention Research.

• Collaboration with national and international organizations.

• Public Education Train the Trainer Program.

• Fire Department Public Education Support.

• K-12 Teacher Support.

• Public Education Deliveries.

“Virtually every fire department carries out some fire and

life safety education in their

communities. Being pro-active is

the way of the future.” Dave Schafer, Manitoba Office of the

Fire Commissioner

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Research and Evaluation

Advancements in any industry, including the fire service, are based on research, data collection, evaluation of incidents and monitoring trends. Research will be ongoing for Indigenous Fire Service as they continue to operate outside of similar environments such as mainstream fire service. As the gaps in relevant codes and regulations are reduced, research will then focus on specific areas unique to First Nations communities such as sprinkler systems in rural environments, relevant cultural issues that impact fire prevention behaviour, etc.

A large scope of the work will support First Nations communities’ transition to address new codes and regulations, and risk management practices for infrastructure that will be grandfathered and will not meet current fire life safety standards.

• Fire Service Equipment Evaluation – Including, but not limited to; evaluation of fire service equipment, negotiation of preferred pricing to allow Indigenous Fire Service to maximize capital investments, support post purchase maintenance programs and promote ethical vendor services to First Nations communities.

• New and Emerging Technology Reviews – Evaluate new and emerging technology to provide industry advice on the viability of emerging technology. In addition perform independent evaluations of technology to confirm specifications promoted by vendors. Collaborate with codes and standards councils and fire prevention organizations to promote viable technology.

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• National Policy Review and Development – Continue to work with national organizations that support and provide funding for Indigenous Fire Service to provide feedback on policy review and new policy development. Provide support to First Nations regarding federal policy and guidelines to allow First Nations to provide adequate fire services to their community.

• Codes and Standards – Provide feedback and response to codes and standards reviews. Support First Nations communities and Indigenous Fire Service to interpret existing and emerging building and fire codes and standards.

• Community Advisory Services - Support First Nations communities and fire service providing community advisory services such as bylaw development, specific file advice on public safety initiatives, capacity development, community governance workshops and ad-hoc requests for services.

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3 - Adjunct Recommendations

First Nations Fire Protection Legislation

First Nations communities fall under the auspices of the Indian Act. This limits the majority of provincial or federal jurisdictions from providing comprehensive fire protection legislation and associated regulations.

First Nations communities require specific Fire Protection Legislation that includes, but is not limited to:

• Associated authority for an Indigenous Fire Marshal service.

• The requirement for the First Nations Chief and Council to adopt an established Building Code and Fire Code.

• Programs & service mandate.

• Fire investigation scope.

• Relationship with federal law enforcement.

• Code standards & reviews.

“The challenge with existing applicable

codes is how the provincial Authority Having Jurisdiction can apply, monitor,

and enforce life safety legislation

and regulations on federal land.” Blaine

Wiggins - Executive Director, AFAC

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• Delegating authority under the legislation to local fire service.

At present, applicable provincial legislation exists to support fire prevention and life safety code activity only for specific purposes. Examples of this include schools operating under existing Provincial School Acts, and Occupational Health and Safety regulations compliance when First Nations governance purchases provincial worker compensation coverage.

The challenge with the existing life safety applicable codes is the confusion of how the provincial Authority Having Jurisdiction (AHJ) can apply, monitor, and enforce applicable legislation and regulations on federal land administered under the Indian Act.

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4 - Essential Principles for an Effective Indigenous Fire Service

Project Guiding Principles

As part of AFAC’s ongoing dialogue with INAC we identified that introducing an Indigenous Federal Fire Marshal will support both the facilitation and provision of programs and services in all four strategic areas identified by AFAC. The four strategic areas are Fire Prevention, Legislative Standards, Fire Service Operations Standards and National Coordination of First Nations Fire Service (Section 6).

Within the scope of comparable services, unlike similar non- First Nations communities, First Nations communities that fall under the auspices of the Indian Act do not have access to support of a Fire Marshal.

The purpose of this report is to review provincial and territorial fire marshal and fire commissioner programs and services to identify those that would support First Nations

“An Indigenous Federal Fire Marshal needs to have

the same mandate as other Fire Marshals,

with defined standards and the ability to have an individual approach with

each community.” Gordon Anderson – BC Fire

Commissioner

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communities’ goals to improve public safety.

This report analyzes current provincial and territorial fire marshal and fire commissioner programs and services to identify the programs and services that should form the basis of an Indigenous Federal Fire Marshal program. The programs and services identified should address the following elements:

• Centre on immediate gaps that are causing loss of life and property in Indigenous communities.

• Broaden understanding of the Indigenous Fire Service beyond suppression (fire trucks & firefighters).

• Address the current gaps in capacity to enable Indigenous communities to fulfill all the roles of a robust fire service.

• Implement immediate alternatives to address legislation gaps in the area of building and fire codes.

• Draw upon the progress made in the mainstream fire service and identify how to effectively adapt and implement in Indigenous communities.

• Examine how advancements in construction fire safety, and fire life safety practices can be applied to Indigenous Fire Services.

• Ensure that the Indigenous Federal Fire Marshal program is adequately financed, empowered and monitored for effectiveness and efficiency.

What is the Fire Service? For most people the phrase “fire service” conjures images of firefighters, fire trucks and fire halls. Inexorably linked are the visceral images of firefighters responding to structural fires. It is not surprising then that, in almost all modern studies conducted, firefighters continue to be picked as one of the most trusted professions - ahead of doctors and police officers.

However, the modern fire service is more complex than the commonly held perception. To maximize the value of this report it is necessary to

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define the fire service and establish an understanding of commonly used terminology.

The fire service encompasses a range of protective services, requires an Authority Having Jurisdiction, and regulatory and legislative oversight.

Protection and Rescue Services • Suppression – Fire response planning, risk assessments, apparatus,

equipment, personnel and infrastructure.

• Administration – Chief Officers, Corporate Officers or Administrators, corporate administrative services (HR, finance, legal, OHS, etc.).

• Public Education and Fire Prevention – Public education material, initiatives and media directed at public audiences, public facilities and industry that provide services to the public to raise awareness of fire prevention and life safety activity during a fire emergency.

• Inspection – Fire inspections, fire plan examination, bylaw compliance.

• Investigation – Fire cause and determination investigations in response to incidents which will produce reports that inform targeted fire prevention campaigns

• Fleet and Equipment Management – Proactive management plan of maintenance and administrative oversight of apparatus and fire service equipment designed to maximize the full capital life of equipment and meet manufacturer specifications for inspections, maintenance and safe operations.

• Information Technology – Acquisition and management of information technology systems for all fire service components including incident reporting, inspections, equipment management, capital planning, training records and occupational health and safety compliance.

• Dispatch and Communications – The equipment and infrastructure to support fire department response activities

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including paging services, radio communications, shared operations communications, repeaters and geographical response coordinated dispatch services.

• Training – Training program that meets the AHJ defined standards for the established fire service.

• Occupational Health and Safety – OHS program defined by the jurisdiction and legislation adopted by the AHJ seeking OHS insurance coverage.

• Specialized Services – Hazmat, water rescue, rope rescue, high angle rescue, technical rescue, urban SAR, etc.

Jurisdiction

The Authority Having Jurisdiction (AHJ) is a legal entity that coordinates, funds, manages and regulates the fire department. The legal entity may be:

• Municipal - i.e. city fire departments.

• District or county - i.e. regional districts and counties.

• Provincial - i.e. government wildland firefighters.

• Federal - i.e. Canadian Armed Forces.

• Private - i.e. industrial fire service at oil refinery.

Regulatory or Legislated Components • Fire protection acts.

• AHJ bylaws or local ordinances.

• Provincial Fire Marshal offices.

Related regulations

Other regulations that govern or dictate the services provided and regulate fire services include but are not limited to:

• Occupational health and safety acts and regulations.

• Motor vehicle acts and regulations.

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• Public Schools Acts – requirement for inspections, fire drills and specific infrastructure.

• Transportation Safety Acts (rail, airports, ports, etc.).

Development of Indigenous Fire Services

The majority of modern era First Nations community fire departments began to emerge in the mid to late 1960s and through the 1970s. This was a result of pressure from First Nations communities for comparable community services and, in response to those demands, the development of INAC and Treasury Board policies to fund fire departments.

Besides the policy to fund capital infrastructure and flexible funding for the delivery of fire protection as part of community infrastructure there was no other associated policy, program, legislation or regulation developed to identify what and how the fire service should operate on reserve lands.

Due to gaps in capacity, regulation and legislation that existed both within First Nations communities and INAC to fully develop a comprehensive fire service, the

“The Indian Act does not address fire life

safety and there is no national mechanism in place to enforce

building or life safety codes on reserve.”

Richard Kent, Fire Commissioner, Prince Albert

Grand Council

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primary focus and mandate of First Nations fire departments was on reactive fire suppression activities. Little or no attention was given to proactive activities such as community fire prevention programs.

Currently and historically the Indian Act does not address fire service or identify any other legislation or regulation. In regards to Building and Fire Codes, INAC capital policy has adopted languages that require new and renovated buildings funded by INAC to meet building codes. There is no formal or standard process established to determine how this requirement is met.

Various initiatives have been started to address the capacity gaps in Indigenous Fie Service such as INAC fire service officers, circuit rider type initiatives and regionally funded emergency services support organizations.

In addition a few First Nations departments have evolved into comprehensive comparable fire service providers. However, the majority of these departments are generally a result of economic circumstances that have provided the infrastructure, capacity and required adequate fire protection needed to sustain the economic drivers themselves.

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5 - Priority NFPA Codes and Standards

To support the development of programs and services that an IFFM should offer, a review of the National Fire Protection Association (NFPA) Codes and Standards was performed to identify priorities and guide implementation. The NFPA Codes and Standards identified in this section are not an exhaustive list as community specific issues will need specific NFPA guiding documents to respond.

As an example; while many communities are implementing bylaws that prohibit or regulate the sale and use of fireworks, many Indigenous communities host vendors who sell fireworks due to the lack of restrictions on Indigenous communities. To address risk and safety concerns specific standards can be utilized from multiple NFPA Codes and Standards to address specific identified risks and industries unique to each community.

Similar to categories developed for program delivery, the following groupings were defined to identify priority NFPA Codes and Standards that are not being applied in a broad and consistent standard similar to non First Nations environments:

• Life Safety Codes.

• Fire Risk Assessment.

• Fire Investigations.

• Fire Service Management.

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• Training Standards.

• Equipment Standards.

The code descriptions and relevance noted below are based on a review of public documents published on the NFPA website. In the event of any inconsistencies between the descriptions provided in this document and the NFPA codes, the NFPA code will be determined to be the correct description.

Guiding Codes

NFPA 1: Fire Code

A guiding code that defines a systematic approach to fire and life safety for the public, first responders and property protection. The focus is a comprehensive, integrated approach to fire code regulation and hazard management. It is the foundation on which all fire services are trained and forms the foundational approach. NFPA 1 references more than 130 NFPA codes and standards including significant range of topics including NFPA 101, NFPA 54, NFPA 58, NFPA 30, NFPA 13, NFPA 25, and NFPA 72.

NFPA 72: National Fire Alarm and Signalling Code

This code addresses fire detection and warning systems. The code has continued to evolve with new editions addressing technological improvements to fire safety, transformation of societal needs in fire detection, signalling device standards and emergency communications. Other areas of the code addresses mass notifications for weather, community risks and large-scale disaster warnings.

The code also defines standards for the application, installation, location, performance, inspection, testing, and maintenance of fire alarm systems. The code is based on prescriptive requirements with performance-based design methods and risk analysis requirements provided and essential for the proper design and integration of public emergency alarm reporting systems, fire warning equipment and emergency communications systems, and their components.

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NFPA 101: Life Safety Code

Similar to NFPA 1, this is the most widely used source for strategies to protect people based on building construction, protection, and occupancy features that minimize the effects of fire and related hazards. NFPA 101 is unique being the only code to address life safety in both new and existing structures.

While still from a global perspective, NFPA 101 has provisions for all types of occupancies, requirements for egress, specific of fire protection, sprinkler systems, alarms, emergency lighting, smoke barriers, and special hazard protection.

Fire Risk Assessments

NFPA 551: Guide for the Evaluation of Fire Risk Assessments

This code supports Authorities Having Jurisdiction to develop the capacity to support efforts to perform fire assessments utilizing risk analysis decision making for fire safety, effective consequence analysis of fire scenarios, develop documentation to accompany risk assessments and evaluate qualifications of personnel responsible for conducting fire risk assessments.

The code also addresses uncertainty when conducting a fire risk assessment and consideration factors for both conducting and reviewing risk assessments, changing effectiveness of fire protection equipment, features, programs, and procedures. From a research perspective the code examines the roles of qualitative, semi-quantitative likelihood, semi-quantitative consequence, and quantitative methods in a fire risk assessment.

The code defines the evaluation of cost-benefit analysis, proper documentation and elements of a fire risk assessment. Utilizing fire safety goals, the code demonstrates the application of risk-informed decision making to achieve fire safety goals, specific application include the preservation of heritage resources that can be significant for First Nations.

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NFPA 1300 - Standard on Community Risk Assessment and Community Risk Reduction Plan Development

Chapter 5 of NFPA focuses on Community Risk Assessment and specific data elements associated with standardized risk assessments and examples of risk assessment guides.

This code is under development by NFPA. AFAC has been in active discussion with NFPA due to the relevance of this code and our Community Risk Assessment project.

Fire Investigations

NFPA 921: Guide for Fire and Explosion Investigations

This code focuses on standards and scientific methods applied to fire and explosion investigations. In addition to field investigations operations, standards are relevant to evaluate the reliability of fire investigations in both civil and criminal trials. NFPA 921 is also the recommended fire investigation guide for the collaborative body of forensic science practitioners and experts who recommend forensic science consensus standards and guidelines - Organization of Scientific Area Committees (OSAC). The code also outlines essential methods for fact gathering, handling of fire-related evidence to meet court admissibility standards and terminology related to explosion and fire investigations.

NFPA 921 current revisions support Fire Marshal and Fire service organizations in the completion of reports from the National Fire Incident Report System (NFIRS). As noted by NFPA, these reports were being misapplied and compared to Fire Investigation Reports during courtroom testimony. NFPA revisions are processed by code review committees, in this review the committee added to the scope of NFPA 921 to distinguish an NFIRS Report from a Fire Investigation Report and identified when one should or should not be used in lieu of the other, especially when NFIRS are outside the scope of NFPA 921.

Other revisions and technical updates include Chapter 8, Fire Protection Systems renamed Active Fire Protection Systems since

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passive systems are addressed in Chapter 7, Building Systems. New images and illustrations were added based on NFPA 72: National Fire Alarm and Signalling Code and the Fire Protection Handbook. Updated Chapter 16 includes technology breakthroughs in the areas of digital photography and 3D scanning. Chapter 18 includes the concept of origin matrix addressing the impact of ventilation on origin determination.

Fire Service Management

NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments

NFPA 1720 supports the administration of volunteer based fire and emergency services. The majority of First Nations fire services are volunteer-based: for the composite and career First Nations fire service NFPA 1710 is the comparable code to support non-volunteer departments.

In addition to scope, purpose and application NFPA 1720 focuses operations and deployment of community risk management, staffing, deployment, reporting, fire suppression, initial attack & sustained firefighting operations, emergency medical services and special operations.

Systems topics covered in NFPA 1720 include Safety and Health System, Incident Management System, Training Systems, Communications System and Pre-Incident Planning. The systems topics aid the Authority Having Jurisdiction to develop systems to support operational areas noted above including established standards and performance benchmarks, evaluation, reporting, evaluation of response area and special risks.

NFPA 1730: Standard on Organization and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations

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This code focuses on fire prevention activity versus suppression fire services. The code identifies the organization, community risk assessment, fire prevention & code enforcement, plan reviews, investigations and public education programs.

The organization of non-suppression services utilizes an organization structure, management information systems, finance, records system, community risk assessment, defined personnel levels and training (training standards defined under training codes). As noted above NFPA 1300 (under development) will assume the Community Risk Assessment code standard currently found in NFPA 1730.

Fire Prevention Inspection and Code Enforcement Activities in Existing Occupancies include the scope, purpose and general requirements. The standard also defines risk assessments associated with Fire Prevention, staffing levels and inspection frequency.

Not specifically noted to frequency is collateral legislation and regulations that prescribe inspections and/or associated fire life safety activities. As an example provincial schools acts and day care regulations determine inspection and fire drill frequencies.

Plan Review Plan review has not been exercised to the extent that would support the overall fire risk management strategies within the community, in larger capital projects these may be performed at an engineering or architectural design level but rarely is this work translated into the local fire service scope or integrated with actual infrastructure.

In addition to risk assessments and infrastructure, this also addresses qualifications and the minimal plan review elements.

NFPA 1730: Standard on Organization and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations

This code defines standards for the scope and purpose of fire prevention education, risk management associated with public education activity. As with the other sections this defines qualifications,

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staffing levels and responsibility. For public education programs it also covers the development and revisions, program delivery and evaluation.

Training

NFPA 1001 Standard for Firefighter Professional Qualifications

NFPA 1001 is the most understood and clearly defined NFPA standard that First Nations fire departments are actively working to achieve. This is due in part to the main focus of First Nations fire service on suppression activity and this standard covers the basic training standard for fire fighter suppression.

The following standards have not had the same level of engagement broadly across First Nations fire service:

• NFPA 1021 Standard for Fire Officer Professional Qualifications The standard that determines the minimal level of requirements to perform the duties of a fire officer and acquired through four distinct levels of certification.

• NFPA 1031 Standard for Professional Qualification for Fire Inspector and Fire Plan Examiner The standard identifies the professional levels of performance required to perform the duties of a fire inspector and plans examiner.

• NFPA1033 Standard for Professional Qualification for Fire Investigator The standard identifies the professional levels of performance required to perform the duties of a fire investigator utilizing facilities that incorporate safe and accurate investigations in both the public and private sector.

• NFPA1035 Standard on Fire and Life Safety Educator, Public Information Officer, Youth Firesetter Intervention Specialist and Youth Firesetter Program Manager The standard identifies the levels of professional performance required for fire and life safety educators, public information

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officers (PIOs), and Juvenile Firesetter Intervention Specialists (JFIS). This standard specifically identifies the job performance requirements (JPRs) for a fire and life safety educator, a PIO, and a JFIS.

• NFPA1037 Standard on Fire Marshal Professional Qualifications The standard identifies the professional level of performance required for Fire Marshal, specifically identifying the minimum JPRs necessary to perform as a Fire Marshal. Due to the broad range of duties recommended qualifications also include NFPA 1021, NFPA 1031, NFPA 1033, and NFPA 1035, and at the appropriate levels.

• NFPA1041 Standard for Fire Instructor Professional Qualifications The standard identifies the professional levels of performance required to perform the duties of a fire instructor. As few First Nations organizations and communities have developed comprehensive training programs or facilities, minimal instructional capacity has developed.

• NFPA 1452 Guide for Training Fire Service Personnel to Conduct Community Risk Reduction This standard is under development but will provide foundational support for enhancement to community risk assessments.

Equipment Standards The following standards are a limited example of apparatus and equipment standards that need to be incorporated into the operations and practice of Indigenous Fire Service and can be utilized as a capacity development focus. The following list is not exhaustive but highlights the specific priority areas:

• NFPA 1961: Standard on Fire Hose

• NFPA 1962: Standard for the Care, Use, Inspection, Service Testing, and Replacement of Fire Hose, Couplings, Nozzles, and Fire Hose Appliances

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• NFPA 1981: Standard on Open-Circuit Self-Contained Breathing Apparatus (SCBA) for Emergency Services

• NFPA 1982: Standard on Personal Alert Safety Systems (PASS)

• NFPA 1986: Standard on Respiratory Protection Equipment for Tactical and Technical Operations

Other NFPA standards for consideration As noted above, unique situations will require the need to seek out specific NFPA codes. Consideration should be given to the following codes that do not fit into the above categories:

• NFPA 5000: Building Construction and Safety Code

• NFPA 1500 Standard on Fire Department Occupational Health and Safety Programs

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6 - AFAC Strategic Priorities

The following strategic priorities were developed by the AFAC Board of Directors in 2014 and revised in January of 2017 based on the research and consultation performed with this project.

Strategic Priority -1 Fire Prevention

To support fire prevention AFAC will:

• Oversee the delivery of national fire prevention programs.

• Liaise with fire prevention organizations and associations i.e. NFPA and Fire Safety Canada.

• Promote NFPA standards and best practice to Indigenous Fire Service membership.

• Identify minimal fire prevention program requirements in Indigenous communities.

• Lead the evolution of a national fire reporting system for Indigenous communities.

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Strategic Priority -2 Legislative Standards

To strengthen legislative standards AFAC will:

• Support the implementation of national fire protection legislation on reserve that defines the AHJ and applicable codes.

• Promote the use on reserve of building and fire codes defined in fire protection legislation and/or regulations.

• Lead the development of a national comparable fire inspection strategy.

• Provide technical support for Indigenous fire departments to optimize their Fire Underwriters Survey classification.

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Strategic Priority - 3 Fire Service Operations Standards

To support the deployment and utilization of operations standards AFAC will:

• Research, develop and implement standards to regulate operations in all aspects of the fire service i.e. training, equipment, environmental scans, fire protection programs, community infrastructure support, volunteerism, etc.

• Promote professional affiliations to enhance leadership capacity in Indigenous fire services i.e. Fire Prevention Officers Association (FPOA), Canadian Association of Fire Chiefs (CAFC).

• Enhance community fire service support through regional Indigenous emergency services organizations, Indigenous Federal Fire Marshal or circuit rider program.

• Continue to support the evolution of INAC’s Level of Service Standard.

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Strategic Priority - 4 National Coordination for Indigenous Fire Service and Emergency Services

To increase the coordination of fire and emergency services in Indigenous communities AFAC will:

• Implement an Indigenous Federal Fire Marshal program.

• Provide policy advice to INAC in the areas of fire and emergency services.

• Liaise with the Association of First Nations (AFN) and regional Indigenous political groups on the development of fire policy.

• Collaborate with other national fire organizations including: CAFC, Canadian Volunteer Firefighters Association (CVFA), Council of Canadian Fire Marshals and Fire Commissioners (CCFMFC) & Canadian Fallen Firefighters Foundation (CFFF).

• Provide support to regional and community Emergency Management Organizations.

• Provide support to enhance Emergency Medical Services for Indigenous communities.

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7 - Appendices

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Glossary AFAC Aboriginal Firefighters Association of Canada

AFN Assembly of First Nations

AHJ Authority Having Jurisdiction

CAFC Canadian Association of Fire Chiefs

CCFMFC Council of Canadian Fire Marshals and Fire Commissioners

CFFF Canadian Fallen Firefighters Federation

CVFA Canadian Volunteer Firefighters Association

DND Department of National Defense

FNBOA First Nations Building Officers Association

FPOA Fire Prevention Officers Association

IFFM Indigenous Federal Fire Marshal

INAC Indigenous and Northern Affairs Canada

JFIS Juvenile Firesetter Intervention Specialist

JPRs Job Performance Requirements

NFIRS National Fire Incident Reporting System

NFPA National Fire Protection Association

OSAC Organization of Scientific Area Committees

PIO Public Information Officers

PPE Personal Protective Equipment

Note to readers: the terms Indigenous, Aboriginal and First Nations are used interchangeably in the context of this report.

Aboriginal Firefighters Association of Canada

www.afac-acpi.ca | [email protected] | 1(250) 267-2579