November 25, 1998
To:Board of Health
From:Dr. Sheela Basrur, Medical Officer of Health
Subject:Ice Storm Emergency Response Plans
Purpose:
To report to the Board on the state of preparedness of Public Health to respond to an
emergency arising from an ice storm in Toronto.
Source of Funds:
Not applicable
Recommendation:
It is recommended that the Board of Health receive this report for information.
Background:
On January 26th, 1998 the Board of Health requested the Acting Medical Officer of Health to
report on the role of Public Health in an ice storm such as the one that affected Eastern
Ontario and Western Quebec last winter and the lessons learned from that disaster.
Subsequently, on October 13, 1998 the Medical Officer of Health was also requested to report
to the Board of Health on:
(a)the existence of funds in a contingency account to meet the needs of the community in the
event of extreme cold and/or an ice storm; and
(b)the status of emergency response plans.
Prior to amalgamation, each of the former cities of Toronto, Scarborough, North York, York,
Etobicoke and the Borough of East York had individual emergency response plans and
operating procedures. Similarly, a cooperative Metro-wide Public Health plan could be
implemented in conjunction with the six individual Public Health plans.
One component of these procedures included plans for the role of Public Health. In addition,
Metro By-law No. 31-96, made under the authority of the Emergency Plans Act, R.S.O. 1990,
gave the legal authority to the Chair of Metro Council for any measures deemed necessary in
an emergency situation in Metropolitan Toronto.
In March 1998, the new City of Toronto Council adopted a recommendation from the
Emergency and Protective Services Committee to adopt the former Metro by-law on an
interim basis for responding to emergencies in the new City of Toronto. In accordance with
this change, the Co-Operative Public Health Emergency Response Plan now serves as the
interim Public Health component. By agreement all of the former municipalities (Toronto,
North York, Etobicoke, York, East York and Scarborough), now the New City of Toronto,
and the three regional Health Units of Peel, York and Durham can participate in a wide-scale
response if needed. Halton Region is also informed of emergent or disaster situations. It is
understood by all participants that each Medical Officer of Health is solely responsible for all
Public Health matters in their respective health units at all times. This plan will continue to be
modified as transition issues are resolved.
The Medical Officer of Health is a member of the Toronto Emergency Management
Committee and this is the mechanism for liaison with other city departments and volunteer
organizations to share information and co-ordinate the communication of issues relevant to
emergency response on a city-wide perspective.
Comments:
In the event of an emergency declared under the by-law or the Emergency Planning Act, there
is authority to expend funds to obtain and distribute emergency materials, equipment and
supplies, notwithstanding the requirements of any by-law governing the commitment of funds
and payment of accounts. Currently there are contingency funds in the amount of $30 million
dollars in the Corporate Financial Items Account to be utilized in such an event.
Public Health Emergency Response Plans are designed to utilize Public Health staff according
to skill sets in the event of an emergency or disaster including an ice storm. These are outlined
as follows:
(1)The Medical Officer of Health shall manage actual or potential outbreaks of
communicable disease, including direction of any immunization programs; provide medical
consultation as appropriate and assist the Red Cross in organizing blood donor clinics at the
reception centre.
(2)Public Health Inspectors shall conduct site monitoring, evacuation centre assessment,
evacuation centre service monitoring, communicable disease control in the centre, and routine
maintenance of community sanitation and food control.
(3)Public Health Nurses shall conduct needs assessments for the evacuees that attend a
reception centre, counselling and emotional security and communicable disease control. In the
case of prolonged detention of evacuees at a reception centre, mental health services may be
utilized to assist in individual problem solving, pre-return counselling for evacuees,
emergency-worker debriefing and community follow-up with referred clientele.
(4)Support Services shall record calls received and actions taken and communications with
other offices and agencies.
(5)Dental Services shall arrange with dentists in practice near the designated reception centre
to use their services and/or facilities for urgent dental treatment and act as a counseling
resource for Public Health Nurses and Physicians.
(6)Animal Services staff will deal with those domestic animals, either in private residences or
at identified evacuation centres that require care, feeding, housing, control or decontamination
in the event of a nuclear emergency.
(7)Healthy Environments staff responsible for emergency response have taken advantage of
learning opportunities with others who have been involved in emergency and disaster
situations, including Public Health organizations involved in the Ice Storm of 98. Information
sessions on their experiences are assisting Public Health staff to develop materials and
emergency plans for such an occurrence.
Other specialized staff skills available to the Medical Officer of Health shall be requested to
work in appropriate supporting roles such as records keeping and coordination, obtaining
translation services in the community and providing epidemiological information and service.
One of the most critical aspects of any emergency response is the ability to contact and
mobilize these staff. In response to the amalgamation of the six former municipal health
departments, an interim mechanism was developed to ensure an efficient means of contacting
appropriate staff in all offices in the event of an emergency. This mechanism will be regularly
reviewed and modified as management staff are assigned to their new placement positions.
For example, we have learned that a proactive communication strategy is critical to ensure
that the messages Public Health needs to deliver to the public are done in an expeditious
manner. Included in this strategy is the development of generic information packages, fact
sheets and public service announcements for the public that can be adapted to meet the needs
of the community.
Due to the magnitude of the crisis, Public Health staff and their families were also victims and
this created challenges for staff who were directly involved in dealing with the emergency at a
personal level and those who wanted to provide assistance but were unable to get to work.
Debriefing sessions after the emergency for all staff was also identified as an important
lesson.
A portion of any emergency plan should include addressing the psycho-social reactions of the
population to the disaster in the moment before, during and immediately after the crisis,
identified as the acute phase; as well as in the return to normal routine identified as the
recovery phase.
Conclusions:
Toronto Public Health recognizes the vital role that the service provides in emergency and
disaster situations and is committed to ensure that the division is prepared to fulfill its roles
and responsibilities by ongoing planning, review, staff training and improvement of
emergency response plans. This process includes the ongoing review to consolidate the
existing Emergency Response Plans for Toronto Public Health and updating the existing
Co-Operative Public Health Emergency Response Plan as a result of the amalgamation
process. Incorporating lessons learned from other Public Health organizations in the Ice Storm
will be an important part of that process.
Contact Name:
Peter Gauthier, Manager, Environmental Health Services, Toronto Office
Tel:392-0936
Fax:392-0714
Dr. Sheela V. Basrur
Medical Officer of Health
