March 10, 1998

To: Emergency and Protective Services Committee

From: Chief Administrative Officer

Commissioner of Works and Emergency Services

Commissioner of Corporate Services

Subject: Fire Services and Ambulance Services Facilities Study Terms of Reference

Purpose:

This report provides a summary of the terms of reference for a Request for Proposals to hire a consultant to assist the City of Toronto in determining requirements and most suitable locations for fire and ambulance stations, headquarters, training, maintenance and mechanical, and storage and supply facilities in order to serve the geographic area of the amalgamated City of Toronto. The study supports recommendations of the Transition Team for greater collaboration among the Emergency and Protective Services and incorporates the recommendations of the former Metro Council respecting a cost-benefit review of ambulance facilities as identified in the Review of Ambulance Services completed by Ernst & Young in October 1996.

Funding Sources, Financial Implications and Impact Statement:

Funding for this project is provided for in the 1998 Fire Services= transition capital budget in the amount of up to $700,000. It is anticipated that long term savings may result from this study through the potential sale of properties and efficiencies gained among Fire Services and Ambulance Services in the sharing of resources.

Recommendations:

It is recommended that:

(1) Council adopt the Terms of Reference for a Fire and Ambulance Facilities Study as described in Appendix A of this report;

(2) The amount of up to $700,000 identified in the 1998 transition capital budget of Fire Services be approved;

(3) The Chief Administrative Officer, in consultation with the Fire Chief, Acting General Manager of Ambulance Services, and Commissioner of Corporate Services be authorized to issue a Request for Proposals and contract consulting services for the purposes of conducting the Fire and Ambulance Facility Study at a cost not to exceed $700,000;

(4) The Chief Administrative Officer forward the final selection of the consultant to the Emergency and Protective Services Committee and Council for information;

(5) The final report and recommendations of the consultant be forwarded to the Emergency and Protective Services Committee, Budget Committee, and Council for consideration as part of the 1999 Capital and Operating budgets; and

(6) The appropriate City of Toronto officials be authorized to take the necessary steps to give effect thereto.

Council Reference/Background/History:

The amalgamation to the new City of Toronto presents opportunities to improve efficiency through the sharing of facilities and resources among Fire Services and Ambulance Services. The Transition Team recommended the following, in part, with respect to Emergency Services:

AA review should be undertaken of fire station service areas to see if response times could be improved by realigning boundaries, now that there is to be a citywide fire service.

Opportunities should be explored for greater collaboration among emergency services, including the potential consolidation of fire and ambulance communication centres and headquarters, and an integrated approach to emergency vehicle repair and maintenance.@

Further, in 1996, a review of Ambulance Services was completed by Ernst & Young that recommended, in part, that Ambulance Services replace its 36 stations with 3 megastations. In consideration of this item, the former Metropolitan Council at its meeting of November 6, 1996, recommended that Athe Department of Ambulance Services, in consultation with the Corporate and Human Resources Department and CUPE Locals 43 and 79, prepare a facility restructuring plan including a detailed cost-benefit study of consolidation of the current 36 ambulance stations to a minimum of 3 megastations or a combination of stations and megastations; the impact on staff under a full fluid deployment model and other Corporate efficiencies that could result from such a move.@ Corporate Services staff hired a consultant to prepare a building audit of ambulance stations that was completed in October 1997. The balance of work has been on hold pending the amalgamation process.

The review of headquarters facilities is required to resolve the newly created need for a City of Toronto Fire Services headquarters following amalgamation. Representatives of Fire Services and Ambulance Services discussed the possibility of a joint headquarters facility at the current Ambulance Services headquarters located at 4330 Dufferin Street. The building has some vacant space that could be occupied in the short term by Fire Services staff with some modifications. In addition to the vacant space, Ambulance Services agreed to relocate some staff to accommodate the short-term head office needs of the Fire Services.

In order to meet the long-term head office needs of the Fire Services, more space than that easily vacated by the Ambulance Services is required. It is apparent that a complete needs assessment of Fire Services and Ambulance Services headquarters functions is necessary to determine whether 4330 Dufferin Street is the most suitable head office solution. Further, the potential reconfiguration of space and relocation of some existing Ambulance Services functions needs to be assessed in a larger context. For example, there are possible savings and efficiencies in establishing centralized and combined Fire Services and Ambulance Services training, maintenance and mechanical, and storage and supply facilities.

Recognizing the need for both services to review facilities and the potential to benefit from facility integration, Fire Services and Ambulance Services staff decided to combine their study efforts through a Request for Proposals. The final document is comprised of two key sections, namely, station facilities, and headquarters facilities including training, maintenance and mechanical, and storage and supply requirements.

Comments and/or Discussion and/or Justification:

Due to the magnitude and complexity of this project and the emerging potential to share and integrate facilities, external consultants with appropriate expertise should do the work. The purpose of the study is to develop a facilities strategy that is efficient and cost-effective and is sensitive to the needs and concerns of all stakeholders including affected staff and the public. The study will result in a facilities plan that can be used as a blueprint for meeting future challenges. The facilities network will support the excellent service provided by Fire Services and Ambulance Services. The study will provide:

(1) A grid pattern identifying optimal number and locations for fire stations based on an evaluation of response times.

(2) A station facility plan supported by an evaluation of the existing 80 Fire stations and 36 Ambulance stations respecting the recommended grid pattern based on location, site, and functionality of the facility. Recommendations for facility integration must give consideration to the unique operating needs and distinct cultures of the Ambulance Services and the Fire Services. A process of consulting with stakeholders including management, union representatives, and the public must be incorporated into the study proposal. A cost analysis, implementation plan, and communication plan must support the plan.

(3) A headquarters facility plan including a needs assessment for the Fire Services and Ambulance Services head office requirements. The plan must also include a cost analysis, implementation plan, consultation process and communication plan.

(4) Recommendations respecting training, mechanical and maintenance, and storage and supply facilities including a cost analysis, implementation plan, consultation process and communication plan.

The study purpose, objectives, deliverables, scope, timing, and evaluation are included in the detailed Terms of Reference attached as Appendix A to this report. The terms of reference were developed by a staff team comprised of representatives of Fire Services, Ambulance Services, Corporate Services, and the Chief Administrator=s Office.

Due to the extensive nature of this study and the need to consult and communicate with stakeholders on a regular basis, it is likely that the work will take approximately 6 to 8 months to complete. It is important to proceed as quickly as possible as the recommended changes will likely improve operations for the Fire Services and Ambulance Services and result in overall savings for the City of Toronto. The consultant will work closely with management and union staff from both Fire Services and Ambulance Services to compile information and address key issues. Corporate Services facilities staff will provide support throughout the study respecting the purchase and sale, renovation and management of facilities. For coordination purposes, the consultant will report to staff of the Chief Administrator=s Office. The results of the study and recommendations will be reported to the Emergency and Protective Services Committee for approval.

The process to hire the consultant will follow established procedures and selection will be based on evaluation of the criteria described in this report. The consultant will be chosen by a staff committee comprised of staff from Fire Services, Ambulance Services, Corporate Services, and the Corporate Policy and Planning Division of the Chief Administrator=s Office. This team will refine the terms of reference, review submissions, conduct briefing sessions and interviews, and check references prior to making a decision.

It is estimated that the study could cost $700,000, an amount that has been identified in the 1998 transition capital budget of the Fire Services. Once Council approves this budget, staff can proceed with the issuance of the Request for Proposals and the hiring of the consultant. There is a requirement to proceed as quickly as possible and complete the study by November 1998, to ensure that the recommendations can be considered as part of the 1999 budget process.

Therefore, it is recommended that Council adopt the Terms of Reference for a Fire and Ambulance Facilities Study as described in Appendix A of this report and the amount of $700,000 identified in the 1998 transition capital budget of Fire Services be approved. Further it is recommended that the Chief Administrative Officer, in consultation with the Fire Chief, Acting General Manager of Ambulance Services, and Commissioner of Corporate Services be authorized to issue a Request for Proposals and contract consulting services for the purposes of conducting the Fire and Ambulance Facility Study at a cost not to exceed $700,000 and that the Chief Administrative Officer forward the final selection of the consultant for information and the final report and recommendations to the Emergency and Protective Services Committee for consideration as part of the 1999 Capital and Operating budgets.

Conclusions:

A comprehensive study of fire and ambulance facilities by external consultants will ensure that efficiencies resulting from amalgamation will be implemented in the best interests of the residents of the City of Toronto. The facilities plan will take into consideration the emerging interrelationships of these essential services and their unique operating needs through broad consultation with stakeholders. The plan must also ensure that the station, headquarters, training, mechanical and maintenance, and storage and supply facilities are cost-effective and efficient while providing support for the excellent service delivery provided by Fire Services and Ambulance Services.

Contact Name:

Katherine Borron, CAO=s Office 392-4318

Deputy Chief Bill Stewart, Fire Services 397-4304

Ron Kelusky, Ambulance Services 397-9240

Han Kwan, Corporate Services 392-8449

Barry Gutteridge Margaret Rodrigues

Commissioner, Commissioner,

Works and Emergency Services Corporate Services

___________________________________

Michael R. Garrett

Chief Administrative Officer

The consultant will work closely with a Steering Committee comprised of representatives of Fire Services, Ambulance Services, Corporate Services, and the Chief Administrator=s Office to conduct the analysis and develop the objectives. The final report will be the subject of a report to the Emergency and Protective Services Committee and Council.

The purpose of the study is to hire a consultant to assist the City of Toronto in determining the best locations for fire and ambulance stations, headquarters, training, maintenance, and storage and supply facilities to serve the amalgamated City of Toronto.

The objectives of the study are:

The evaluation of the locations of the fire stations in the former six municipalities of East York, Etobicoke, North York, Scarborough, Toronto and York consists of assessing various levels of service scenarios for fire protection and determining the most suitable location for fire stations now that the service boundaries have been eliminated. The scope of the study includes:

The study also includes the evaluation of headquarters requirements for the Fire Services and Ambulance Services to determine the best solution to accommodate the headquarters functions. As an interim solution, the former Ambulance headquarters facility at 4330 Dufferin Street now also accommodates some of the Fire Services headquarters functions. In assessing whether the building can fully accommodate the long-term headquarters requirements for the Fire Services and Ambulance Services, a needs assessment and building evaluation is required. The existing building accommodates Fire Services executive offices and key management, staff and Ambulance Services management and administration. In addition, Ambulance Services operates a station as well as training facilities, vehicle maintenance, storage and supply from the 4330 Dufferin Street location. These Ambulance Services operations must be specifically evaluated in the context of relocation, possibly with existing Fire Services facilities, or other sites available within the property inventory of the new City of Toronto. The scope of the study includes:

Response Time Standards:

The establishment of response time standards for the Toronto Fire Services is a critical factor in determining an optimal location plan to best serve the needs of the residents of the City of Toronto. Response time for the purpose of this evaluation is measured from the point in time a dispatched vehicle leaves the station to the time the vehicle arrives at the emergency scene. In addition, response time will be measured from the time that Fire Services dispatch receives the call. The recommended response time standards must recognize the full scope of services delivered by the Fire Services including emergency fire response and tiered response.

The consultant is required to:

Risk Analysis:

The evaluation must be based on a risk analysis of fire hazards and public safety parameters. The consultant is required to:

Fire Station Location Grid:

An ideal fire station location grid provides a geographical blueprint of service areas based on an ideal number of fire stations to serve the City of Toronto. The consultant is required to:

Fire Station Assessment:

An assessment of the 80 existing fire stations will be provided to the selected consultant. The continued use of stations or closure of facilities must give consideration to the priorities of the Fire Services in delivering the best emergency service possible. The consultant is required to:

Integration Opportunities with the Ambulance Services:

In the context of the changes being considered following the review of Ambulance Services as described above, and the amalgamation of the former six fire departments into one, there may be opportunities to integrate some or all of the ambulance and fire station facilities to achieve efficiencies. The consultant is required to:

Allocation of Resources:

The six former fire departments all had various levels of staff and equipment resources. In the context of the recommended facility plan, there is potential to reallocate resources to improve consistency and efficiency. The consultant is required to:

Facility Plan:

In the Amalgamation Report dated August 1997, the Fire Chiefs expressed their preference respecting Emergency Response. AIt is the opinion of the Fire Chiefs that the citizens are best served by a uniform service delivery. Example: a pumper in each fire station with additional vehicles strategically placed in accordance with the needs of the local community, such as: high rise unit in dense area of high rise buildings; Haz-mat vehicles near heavy industrial areas; rescue vehicles near highways, etc. With uniform distribution of pumper vehicles, it provides multiple options for selection of additional vehicles to respond to major alarms or numerous fires simultaneously throughout the large city area.@

Ambulance Services work using a combined station-based and mobile deployment model. Fire Services and Ambulance Services also work together in the interest of public safety using tiered-response protocols for life-threatening emergencies.

The consultant is required to:

Cost Analysis:

The consultant is required to:

Implementation Plan:

The consultant is required to:

Consultation Process and Communications Plan:

The method of consultation proposed must involve all key stakeholders in the study process including Fire Services and Ambulance Services management and union representatives, Facilities Management staff, and the public. The communications plan must address specifically concerns of the public impacted by the closure of any fire station or ambulance station and the commitment to public safety as a priority.

Early in 1998, Ambulance Services and Fire Services worked together and determined that the Fire Services administration requirements could be temporarily be accommodated at Ambulance Services headquarters, located at 4330 Dufferin Street. This has required the relocation of some Ambulance Services staff to accommodate some of the management functions of the Fire Services. This interim solution has provided an environment for the Fire Services to assemble a management team to work together to implement the amalgamated Fire Services. In addition, the cohabitation of Fire Services and Ambulance Services headquarters functions presents an opportunity to share resources within the headquarters facility.

Phase one of the Fire Services move to the Ambulance headquarters building is in progress and involves the Fire Services executive and key management staff. These short-term needs were developed into a plan by City of Toronto Corporate Services staff and $935,000 has been identified in the Corporate Services= transition capital budget to complete renovations to accommodate approximately 75 Fire Services staff by September 1998. This plan does not accommodate the long-term needs of the Fire Services. The accommodation of all head office staff requires a detailed needs assessment and the potential relocation of some Ambulance Services functions such as training, mechanical and maintenance, and storage and supply.

Fire Services and Ambulance Services Headquarters Needs Assessment:

The needs assessment for Ambulance Services headquarters functions must address all operations currently accommodated at 4330 Dufferin Street. The needs assessment for the Fire Services headquarters functions must address all requirements provided in the proposed organizational plan provided by the Fire Services. The evaluation must also consider potential areas that can share resources between Fire Services and Ambulance Services. The evaluation must address the following criteria:

Evaluation of 4330 Dufferin Street:

Based on the above assessments of Fire Services and Ambulance Services requirements, the consultant must evaluate 4330 Dufferin Street to determine its capability of accommodating both Fire Services and Ambulance Services headquarters requirements. The evaluation must include a cost-benefit analysis of various options to renovate the site to meet the proposed needs.

Evaluation of Alternative Fire Services Headquarters Locations:

The consultant must evaluate alternative options to accommodate the Fire Services headquarters to confirm whether or not the combined Fire Services and Ambulance Services headquarters at 4330 Dufferin Street is the best option for the City of Toronto with respect to cost, efficiency and operational benefits. The consultant may choose to recommend that Ambulance Services headquarters remain at 4330 Dufferin Street and the Fire Services headquarters be developed or moved to an alternative location.

Recommended Headquarters Facilities Plan:

The consultant must prepare a facilities plan indicating space allocation by function, based on City of Toronto planning principles, to accommodate Fire Services and Ambulance Services headquarters requirements.

Recommended Strategy for Training, Maintenance and Mechanical, and Storage and Supply Functions:

The consultant must recommend alternative locations for training, maintenance and mechanical, and storage and supplies, which may involve sharing facilities off-site.

With respect to fleet maintenance and garage operations, reference should be made to the Corporate Fleet Management and Consolidation of Garages Study that will be carried out in 1998, for the rationalization of optimizing existing facilities across the City of Toronto.

Cost Analysis:

Provide a cost analysis of the recommended solution including standby requirements, planning, design, construction, permits, moving, furniture and other ancillary costs.

Implementation Plan:

The consultant is required to indicate the steps required implementing the recommended course of action specifically with respect to maintaining services during the transition. The implementation plan should include a schedule addressing the specific time period to complete the recommended course of action and any milestones in the context of the approval processes required for the City of Toronto.

Consultation Process and Communications Plan:

The consultation process proposed must involve the key stakeholders in the process including Fire Services and Ambulance Services management and union representatives, Facilities Management staff, and the public. The consultant is required to provide a communications plan for staff of the Fire Services and Ambulance Services, politicians of the City of Toronto, and the public to ensure a smooth transition to accommodate headquarters, training, mechanical and maintenance, and storage and supply facilities.

Timing:

It is expected that the selected consultant will begin work by May 1998 and complete the study by November 1998. This accelerated timeframe is important to ensure that the recommendations can be considered in the preparation of the 1999 capital and operating budgets.

Selection Criteria:

Submissions from consultants will be evaluated against a range of criteria including:

The criteria are not listed in any intentional order of priority.