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Lessons Learned from the Ministry of Community Services’ Innovations in Fire Services Pilot Program

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Lessons Learned from the Ministry of Community Services’ Innovations in Fire Services Pilot Program LESSONS LEARNED FROM THE MINISTRY OF COMMUNITY SERVICES’ INNOVATIONS IN FIRE SERVICES PILOT PROGRAM Produced for the British Columbia Ministry of Community Services Author / Researcher: Rena Bindra April 2007 Printed for: the School of Public Administration, University of Victoria Client: Ministry of Community Services, Victoria, BC Program: Masters of Public Administration (M.P.A) Course: ADMN 598 Date: April 2007 Rena Bindra Page 3 of 140 Lessons Learned from the Innovations in Fire Services Pilot Program EXECUTIVE SUMMARY Background This report captures the lessons learned from the Innovations in Fire Services Pilot Program (the “Innovations Program”), a grant­based program designed by the Ministry of Community Services (the “Ministry”) in conjunction with the Office of the Fire Commissioner (the “OFC”) to build the capacity of regional districts to deliver more effective and efficient regional fire support services in BC, and to thereby enhance public safety. While the concept of regional service delivery varies significantly across jurisdictions, in BC regional service delivery refers to various forms of cooperative, collaborative and integrated service delivery between different local governments, primarily regional districts. As the only Canadian province with a regional district system, BC is ideally suited to use regional districts for the effective and efficient delivery of local services. Although the delivery of fire suppression services in BC faces no significant challenges, a review of the Fire Services Act in 2002 revealed that many aspects of the Province’s fire support services, especially in the areas of training, communication, administration and safety assessments, face a number of capacity­related issues. The review revealed that little was being done to coordinate the fire service (which consists of over 400 independent fire departments) at the regional district level, in part because, historically, BC’s fire service has developed independently and outside of the regional district system. In response to the fire service’s various capacity­related issues, and in the spirit of developing solutions that meet local needs, the Ministry developed and implemented the Innovations Program. Objectives & Methodology The basis for this study is a set of 22 qualitative, face­to­face interviews undertaken (during the months of June to August 2006 inclusive) with individuals from six regional districts (RDs) who participated in the Innovations Program. The purpose of the interviews (and ultimately the purpose of the research study) was to collect feedback from the regional districts involved, in an effort to harness the learning from the Innovations Program. The study was expected to yield valuable information that would enhance the Ministry’s knowledge of regional fire support service delivery and provide a preliminary understanding of the benefits, challenges and opportunities in relation to the regional delivery of fire support services in BC. Lessons Learned Generally, the findings indicate that the Innovations Program has been successful to date. The regional fire support initiatives (ranging from regional training to regional safety assessments to regional communications) undertaken by each of the six RDs reviewed in this study are all realizing a number of benefits and are paving the way for other regional fire support services in BC. Overall, this study has provided valuable insights in relation to a number of areas, including the following: Rena Bindra Page 4 of 140 Lessons Learned from the Innovations in Fire Services Pilot Program Regional Characteristics / Geography This study reveals that certain regional characteristics naturally lend themselves to certain forms of regional fire support services. For example, geographically compact and densely populated RDs can typically offer region­wide fire services more easily than geographically large RDs with sparsely populated areas, because they are usually better able to take on services by contracting them out to a specialized fire department. Geographically large and dispersed regional districts, on the other hand, are more likely to require centralized, sub­ regional, or multi­regional service delivery through partnerships. Common Support Issues Regional districts face a wide variety of fire service issues, many in relation to a lack of economies of scale in fire support services. Although the existence and extent of these issues depend on a variety of factors, including geography, the local fire service and the local political environment, the ultimate concern for all regional districts is the level of public (including firefighter) safety. This study also reveals that some RDs have already “solved” some of the same fire service delivery issues that other regional districts are currently facing. Finally, this study demonstrates that a formal, regulated, and enforced regional fire safety inspection service remains a politically sensitive issue in many RDs. Prerequisites Required for Regional Delivery of Fire Support Services A number of factors were found to be predictors of success in the development of regional fire support services, including an understanding of the organizational history of all fire departments located within an RD’s boundaries, a basic level of cooperation and some experience in collaborative regional activities, a basic fire suppression service in rural areas, accessible fire departments, and a willing and supportive political environment. This study also reveals that regional districts have the best organizational capacity to develop and deliver regional fire support services, and that those regional districts that have prior experience with, and an existing appetite for, regional activities are more likely to undertake future regional activities. Impetus and Need for Change This study reveals that both regional districts and the fire service are becoming more aware of the need for, and importance of, regional fire support services. RDs, in particular, are realizing that they have an important role to play in the delivery of regional fire support services. Generally, the attitudes and the isolated culture of the fire service are slowly beginning to change as fire service capacity related issues become more recognized and accepted. Types of Regional Fire Support Services This study reveals important information about three key types of fire support services. First, this study reveals that regional fire safety assessments are a more practical and effective approach for both regional districts looking to provide their unincorporated areas with some type of a fire inspection service and in regional districts where regulated fire safety inspection schemes remain a contentious issue. This is partly because safety assessments lead to higher levels of compliance than regulated and enforced fire safety inspection schemes. Second, regional training initiatives can result in cost savings, build Rena Bindra Page 5 of 140 Lessons Learned from the Innovations in Fire Services Pilot Program cooperation and communication between fire departments, and can better equip fire departments to respond to emergencies collaboratively. This study reveals that many RD fire departments and volunteer firefighters simply require a basic, entry­level fire training curriculum, rather than a full comprehensive and complex curriculum (as would be required for career firefighters in metro areas). Third, the study reveals that the current Local Assistant to the Fire Commissioner (LAFC) system is largely inefficient and ineffective to meet the needs of the fire service, and, as a result, a regional fire prevention manager model would be more effective, efficient and practical for the OFC, regional districts and the fire service. Preliminary Benefits of Delivering Fire Support Services Regionally This study reveals that the delivery of regionalized fire support services, through economies of scale, can result in a more efficient and effective fire service. The regional districts reviewed in the study are already realizing a number of specific benefits as a result of their regional fire support services, including the following: cost savings, consistency in operations, training and other standards, increased sharing/pooling of resources, a reduced number of service gaps, improved coordination among fire departments, strengthened communities, and, overall, enhanced public safety. These benefits demonstrate that regional service delivery efforts, no matter how small, can often result in benefits far greater than their initial investment. Preliminary Challenges of Delivering Fire Support Services Regionally A number of different challenges were faced by the six RDs in the development and implementation of their various regional fire support services, including the following: resistance to change (particularly opposition from fire personnel concerned about losing independence and control); lack of resources (such as sufficient time, money and human resources); technology (such as a lack of internet access in rural areas); and political support (including a lack of willingness from some regional boards). This study also demonstrates that the existing legislative framework does not appear to be an impediment or a barrier in the development of effective regional fire support services, but that development of a regional fire prevention manager model would likely require some legislative changes. Keys to Success The successful development and implementation of the various fire
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