DateApril 12, 1999

To:Emergency and Protective Services Committee

From:Chief Administrative Officer and Commissioner of Works and Emergency Services

Subject:KPMG Fire and Ambulance Services Facilities Study

Purpose:

To provide an overview of the Fire and Ambulance Services Facilities Study completed by the consulting firm KPMG.

Specifically, the report addresses the study objectives, approach and recommendations regarding the most appropriate utilization of facilities for Ambulance and Fire Services in the future. Finally, implementation of the KPMG recommendations is discussed from a corporate perspective to ensure that decisions resulting from this review meet the overall best interests of the City.

Funding Sources, Financial Implications and Impact Statement:

The costs associated with the implementation of the proposed accommodation plan for the Emergency Services Headquarters are $6.1 million. These capital expenditures have already been approved in the City of Toronto's one year capital budget.

The financial implications related to the KPMG review of fire and ambulance facilities and fleet maintenance fall into two categories: amalgamation savings and service level improvements. Amalgamation savings are potential cost savings derived from the efficient use of existing fire and ambulance facilities in the amalgamated City of Toronto.

Service level improvements are the provision of services to previously underserviced areas and the upgrading of fire and ambulance facilities to accommodate modern emergency vehicles. It should be noted that these service improvements are necessary regardless of amalgamation.

The overall financial impact of the changes proposed in the fire and ambulance location strategy are as follows: a net one-time capital expenditure of $1.1 million incurred in the first five years of implementation results in potential annual savings of up to $55.8 million realized over a ten year period.

The KPMG study outlines a fleet maintenance and mechanical facilities plan which provides for the maintenance of heavy and light emergency vehicles in three garage locations. An estimated one-time capital investment of $99,000 is required to prepare these garage facilities for the proposed usage. Estimated annual operating savings of $663,000 can be realized based upon this proposed fleet maintenance plan.

Appendix A of this report provides the summary of financial impacts.

These cost savings can only be achieved, if the recommendations of the KPMG fire and ambulance facilities study are implemented in their entirety. Any modification to the proposed strategies for the location of fire and ambulance stations, the re-allocation of fire apparatus or the fleet maintenance plan will alter savings.

Recommendations:

It is recommended that:

(1)Council adopt, in principle, the recommendations outlined in the Headquarters Accommodation Plan, the Fire and Ambulance Location Plan and the Fleet Maintenance and Mechanical Facilities Plan of the KPMG Fire and Ambulance Facilities Study.

(2)the following issues pertaining to the rationalization of facilities, the re-allocation of apparatus, fleet maintenance and human resources be reviewed prior to implementation:

Rationalization of Facilities

(3)the Fire Chief and the General Manager of Ambulance Services prepare a detailed schedule for phasing in the proposed fire station location plan and ambulance co-location plan outlining critical milestones;

(4)the Fire Chief and the General Manager of Ambulance Services prepare a five/ten year capital plan which includes detailed cost estimates for the construction of new fire stations/new ambulance stations and for the required improvements to existing fire and ambulance stations together with a timetable for the realization of associated cost savings;

Re-allocation of Apparatus

(5)Council approve the re-allocation of fire apparatus and the Fire Chief prepare a detailed timetable for the re-allocation and review the feasibility of a potential reduction/ redeployment of five fire companies;

Fleet Maintenance

(6)the Commissioner of Works and Emergency Services and the Commissioner of Corporate Services review the recommendations regarding fleet maintenance and mechanical facilities within the context of the corporate fleet study;

(7)the Commissioner of Corporate Services immediately begin a discussion with Toronto Hydro on the shared use of the Toronto Hydro Underwriters Road facility for vehicle maintenance purposes;

Human Resources Implications

(8)the Fire Chief and the General Manager of Ambulance Services prepare respective individual reports on the human resources implications of the Fire and Ambulance Facilities Study in view of current staffing needs and service demands; and

(9)the appropriate City Officials be authorized and directed to take the necessary action to give effect thereto.

Council Reference/Background/History:

City Council, at its meeting on July 28 and 30, 1998 approved the selection of KPMG as the consultant to complete the Fire Services and Ambulance Services Facilities Study as defined by the terms of reference previously approved by Council on May 13 and 14, 1998. The terms of reference were developed initially to study the facilities impact of the elimination of the former local municipal boundaries on Fire Services within the City of Toronto, and to identify redundant fire stations which may result. The terms of reference were subsequently expanded to include an overlay of Ambulance stations with Fire stations to determine any potential for co-location of the two services. Further, the study reviewed accommodation of both the Fire Services and Ambulance Services at the former Ambulance Headquarters Facility at 4330 Dufferin Road. Part of the headquarters review also encompassed a review of vehicle fleet and maintenance facilities and training facilities.

The overall objective of the study was to identify efficiencies and cost savings in facilities while ensuring continued excellent Fire Services and Ambulance Services in the future.

Background:

1.0Study Approach

The consulting team selected by the City was led by KPMG and was comprised of The Dubois Plumb Partnership, IUAB Commercial & Residential Risk Services, Marshall Macklin Monaghan Limited, and POMAX Inc. The Dubois Plumb Partnership and POMAX Inc. were responsible for the assessment of fire and ambulance headquarters needs and station location. IUAB Commercial & Residential Risk Services focused on fire station operations and administration, emergency response communications, apparatus and equipment assessment, maintenance facilities and programs. Marshall Macklin Monaghan with extensive expertise in computer modelling, traffic analysis and forecasting was responsible for establishing the response time standards and grid.

The consulting team reported for project direction to a City senior staff team including the Fire Chief, the General Manager of Ambulance Services, a representative from Corporate Services and a representative from the Strategic and Corporate Policy Division of the CAO's Office. Consultation meetings were conducted throughout the study period with a Steering Committee that included representatives of the Firefighters Association, Locals 79 and 416, and the Paramedic Association. Updates were also provided on a regular basis to the Working Group on Fire and Ambulance Services. This Working Group was chaired by Councillor Duguid and included other political representatives as well as Fire and Ambulance Services staff and Union and Association representatives.

2.0Study Objectives

The objectives of this study were as follows:

Cto recommend the appropriate response time targets for Fire Services;

Cto investigate best practices in the delivery of fire protection services;

Cto recommend a station facility plan for Fire Services and Ambulance Services;

Cto undertake a needs assessment of Fire Services and Ambulance Services Headquarters space requirements; and

Cto recommend facility plans for training, maintenance, mechanical, storage and supply facilities for Fire Services and Ambulance Services.

The deliverables of the study included: a fire station location plan with an ambulance overlay, an accommodation plan for Fire Services and Ambulance Services Headquarters and a fleet maintenance and mechanical facilities location plan.

The study was intended to determine the most appropriate plan for fire station locations and apparatus allocation necessary to provide appropriate emergency protection for the City. The study also examined opportunities for co-locating ambulance and fire services. In short, the KMPG study was strictly a facilities study which focused on the most appropriate arrangements of fire and ambulance facilities. An operational review of Fire and Ambulance Services or a review of adequate and appropriate human resources for the delivery of Fire and Ambulance Services were not part of the terms of reference for this study.

The study was conducted over a seven-month period between June, 1998 and January, 1999.

3.0Overview of Study Recommendations:

Appendix B provides a summary of the study's recommendations. Recommendations in the study are organized into three sections: Section 1: Emergency Services Headquarters; Section 2: Station Location; and Section 3: Fleet Maintenance and Mechanical Facilities. The study's recommendations can be broadly grouped into five categories: (1) service level standards, (2)potential amalgamation savings, (3) required service improvements, (4) service effectiveness, and (5) headquarters accommodation plan.

3.1Service Level Targets

Recommendations in this area propose preferred targets for the delivery of fire and ambulance services. These targets are to be used as guidelines which characterize adequate fire and ambulance protection services. These service level targets were developed based upon a review of best practices in other cities as well as the unique service requirements of the amalgamated City of Toronto. Service level targets proposed in the KPMG report include target response times, public education programs and service delivery strategies.

The study recommends that the City of Toronto adopt a four-minute first response time target for fire services and a second response time target of eight minutes. For Ambulance Services, the study proposes that in life threatening situations, especially cardiac arrest, the City of Toronto, Ambulance Services, maintain an eight-minute response time standard (8:59 minutes) from the time a call is received to the time emergency services arrive on the scene. Advanced life support should reach the patient within twelve minutes of call receipt. The study also recommends that the Fire Chief and the General Manager of Ambulance Services review the first and tiered response practices to ensure that they are effective and that emergency resources are used efficiently. The report suggests that Fire Services review the actual travel times periodically to ensure that fire protection needs continue to be met.

The study endorses the current ambulance practice of utilizing both a mobile and a static response mode as a preferred standard. The study does not consider the development of ambulance mega-stations (or barn-style ambulances) as a preferred option for the deployment of Toronto's Ambulance Services.

The study recognizes the need for the City of Toronto to implement a public education program which will ensure that members of the public can recognize an emergency, can notify emergency services and provide CPR and other life saving measures until emergency services arrive on the scene.

3.2Potential Amalgamation Savings

The six fire departments of the former area municipalities have been merged with the creation of the amalgamated City of Toronto. Recommendations in this area identify possible savings which can be derived from the merger of six fire services and facilities into a unified fire service for the new City of Toronto.

According to the report, potential amalgamation savings can be found in the closure of redundant fire stations, the co-location of ambulance stations with fire stations, the rationalization and re-allocation of fire service equipment across the City and the establishment of separate service-specific fleet maintenance facilities for Fire and Ambulance Services.

In order to realize these potential amalgamation savings, it is important to note that some up front capital investment is required in order to undertake needed improvements to fire and ambulance facilities to enable them to accommodate modern emergency equipment. This issue is addressed in more detail in section 3.2.4. of this section.

3.2.1Two Redundant Fire Stations

The study recommends that fire station T26 (153 Chatham Avenue) and T31 (462 Runnymede Road) be removed for fire services. These two fire stations are redundant because fire protection services from fire stations in the surrounding areas can meet the area coverage needs within the proposed response time targets.

The sale value of these two stations is estimated at $1.9 million, the annual operating savings associated with the closure of these stations for fire services is $20,000 per station for a combined total of $40,000.

(T26 is identified as an alternative location for an Ambulance Services Station. This issue will be addressed as part of the ambulance co-location strategy in the next section.)

3.2.2Co-location of Seven Ambulance Services with Fire Stations

The report identifies seven opportunities for co-locating fire and ambulance services in the same facility. Four ambulance services can be co-located with existing fire stations. Three ambulance services can be co-located with the proposed new fire stations. The proposed co-location plan is as follows:

Co-location with existing fire stations:

CAmbulance Station 43 (126 Pape Avenue) moves to the existing redundant fire station T26.

CAmbulance Station 34 (674 Markham Street) moves to the existing fire station T2/T25.

CA new ambulance crew moves to the existing fire station T5.

CA new ambulance crew moves to the existing fire station E9.

Co-location with proposed new fire stations:

CAmbulance Station 14 (321 Rexdale Blvd.) will be co-located with the new fire station A (Etobicoke).

CAmbulance Station 47 (3600 St. Clair Avenue E.) will be co-located with the new fire station D (Downsview).

CAmbulance Station 25 or 26 (8200 Sheppard Ave East / 5316 Lawrence Avenue East) will be co-located with the new fire station E (Ellesmere/Morningside). (Ambulance Services will make the final determination on which Ambulance Station should be co-located with Fire Station E).

The realization of this co-location strategy requires $280,000 to cover renovation costs associated with relocating Ambulance Stations 43 to the redundant Fire Station T26 and co-locating ambulance equipment into Fire Stations T2, T5 and T25.

The sale value of five ambulance stations which can be co-located with existing and proposed fire stations (43, 34, 14, 47 and 26 or 25) is estimated at $3.8 million.

The proposed co-location strategy for Ambulance Services results in net capital savings of $3.5 million.

3.2.3Apparatus Re-Allocation

The study proposes a detailed apparatus re-allocation plan across the City of Toronto. This plan is designed to maximize the efficient usage of fire protection apparatus and to allocate fire apparatus to immediately enhance service delivery in the previously underserviced areas. (see Appendix B, Recommendation 8).

3.2.4Fire Station Improvements

The study indicates that certain fire station improvements are required to support the re-allocation of apparatus. The estimated one time cost of improving fire stations is an estimated $4.4 million. The required improvements consist of both structural and dimensional improvements. Structural improvements refer to the upgrading of slabs and ramps so that they have sufficient load bearing capacity for modern fire equipment. Dimensional improvements include required changes to the doors or ceilings which are currently too low or too narrow to accommodate modern fire equipment.

3.2.5Fleet Maintenance and Mechanical Facilities

The proposed fleet maintenance and mechanical facilities plan envisions the provision of separate facilities for light and heavy weight vehicles and the need for satellite garages to provide geographic coverage. The fleet maintenance and mechanical facilities plan proposes one centralized heavy vehicle facility at Underwriters Road, one centralized facility for light vehicle maintenance at 4330 Dufferin and two heavy vehicle satellite garages at East Mall and Bathurst.

3.3Required Service Level Improvements

The study also identifies required improvements in Fire and Ambulance Services. The study identifies underserviced areas which existed in the six area municipalities prior to amalgamation and, depending on the timing of development, would have to be rectified regardless of amalgamation.

3.3.1Six Proposed New Fire Stations

Based on the respective target response times for Fire Services, the study points to areas in the City of Toronto which are currently underserviced. In these underserviced areas, the current response time for fire calls is longer than the proposed target response times.

Based upon the proposed four-minute target response time, the report recommends that, when warranted, the City of Toronto build six new fire stations at the following locations:

Station A:Northwest Etobicoke: west of Highway 27, south of Rexdale Boulevard

Station B:Downsview: Keele Street, between Wilson Avenue and Sheppard Avenue

Station C:Northeast North York: on Sheppard Avenue, between Leslie Street and Bayview Avenue

Station DCentral Scarborough: at or near the Eglinton Avenue/Midland Avenue intersection

Station EEastern Scarborough: at or near the Ellesmere Road/Morningside Avenue intersection

Station FNortheast Scarborough: at or near the Finch Avenue East/Meadowvale Road intersection

Of these six fire stations, only station F needs to be built soon to service the northeastern area of Scarborough. The development of the remaining five fire stations is dependent upon the future development activities in the identified areas and on an increase in service demands. It is proposed that the remaining five fire stations be phased in over time.

The total cost for the development of six new fire stations is estimated at $15.8 million. The development of Fire station F in Scarborough is estimated at $2.0 million in capital costs and $20,000 in annual operating costs.

3.3.2Ambulance Stations

The report identifies three areas for service level increases in Ambulance Services in the long term:

1.The existing Ambulance Station 21 (2075 Bayview) located at Sunnybrook Hospital should be replaced in the long term with a new Ambulance station which is designated for full emergency services. The current station has poor access to the road network and is used only as a "Non-Emergency Ambulance Station" for this reason. Mobile ambulance stations adjacent to Station 21 currently service Station 21's designated coverage area. In the short term, Station 21 should be redesignated as a full emergency station.

2.The study proposes that an Ambulance Station be co-located with Fire Station E1 when rebuilt. The current gap in Ambulance Services is addressed by a mobile stand-by unit stationed in the vicinity of Norseman Avenue. This area has been identified as a key development zone of the city for both residential and commercial development.

The study proposes the co-location of an ambulance station with Fire Station E9 as an interim solution. In the long-term, the study proposes that if a site of sufficient size can be found, the City of Toronto rebuild Fire Station E1 on Royal York Road with space for two ambulance bays.

3.The study also recommends that the concept of District Ambulance Stations be further explored. District stations are ambulance stations which would provide support services to community stations; these support services could include district managerial and support staff, spare vehicles and stores area. It should be noted that District Ambulance Stations are not mega-stations which consolidate several community ambulance stations into one large station. The City of Toronto could be divided into four possible districts.

The study does not provide a separate costing for these ambulance service level improvements.

3.4Service Effectiveness

The three recommendations in this area provide suggestions for enhancing the delivery of Fire and Ambulance Services.

The study proposes that the City of Toronto review and potentially tighten the current parking enforcement program. It is at times difficult for emergency vehicles to gain access to the scene, due to vehicles parking on both sides of the street. This is especially problematic in older city neighbourhoods.

The study also suggests that Fire and Ambulance Services continue to be consulted in the development of traffic calming plans.

The study also recommends an ongoing dialogue between management and union representatives from the Fire and Ambulance services to address issues arising from the co-location of these two emergency services.

3.5Headquarters Facilities

The KPMG study proposes an accommodation plan for the Emergency Services Headquarters Building on 4330 Dufferin Street. The capital costs required to implement this plan are $6.1. million with $4.6 million for renovation costs to the Headquarters Office and $1.5 million for the development of an integrated Fire and Ambulance Training Centre. These capital expenditures have already been approved in the City of Toronto's one year capital budget for 1998/1999. Based on the termination of leases for fire services associated with this accommodation plan, annual cost savings of $75,000 can be realized with a cumulative 10 year total savings of $750,000.

According to the accommodation plan, the headquarters administrative and communications functions for Ambulance and Fire Services will be co-located. A Training Centre will integrate the Toronto Fire Academy and Ambulance Training. The accommodation plan proposes that ambulance stores be re-located off-site to another city-owned facility. The communications centre at Headquarters office should be expanded to service both Fire and Ambulance Services. The accommodation plan permits future expansion, which would allow for the co-location of police and 911 back-up facilities at Headquarters. The plan proposes that the fleet of ambulance buses and multi-patient units will remain at Headquarters.

4.0Analysis

The implementation of the recommendations contained in the KPMG Fire and Ambulance Facilities Study is dependent upon the in-depth examination of five crucial issues by city staff.

First, the Fire Chief and the General Manager of Ambulance Services will need to prepare a detailed timetable which outlines how the proposed changes regarding fire station location, the co-location of Ambulance Services with fire stations, the re-allocation of fire apparatus, the improvements to existing fire and ambulance stations as well as the development of new stations will be phased in over a ten year period. The steps in the sequence are linked to each other and are interdependent. It is furthermore essential that a five and a ten year capital budget be prepared which identifies the financial pressures on the city budget associated with these changes. This ten year financial plan will also have to address the savings which can be realized by the City in each year as the City moves towards the implementation of this master plan for fire and ambulance facilities and the completion of the Emergency Headquarters Office.

Second, certain questions need to be addressed with respect to the re-allocation of fire apparatus. It is recommended that the City of Toronto adopt the redeployment strategy for fire apparatus as outlined in the KPMG report. However, the implementation of this strategy requires that the Fire Chief prepare a detailed timetable which identifies the sequence of operational steps in re-allocating fire apparatus across the City in order to ensure excellent fire protection and in-depth area coverage. Furthermore, it is recommended that the Fire Chief examine the impact of removing five fire companies from the fleet on overall fire protection services.

Third, the City of Toronto is involved in a corporate fleet study which examines the most cost-efficient and effective ways of managing and maintaining the vehicles in the corporate fleet. Although the KPMG study proposes that it is more efficient to maintain emergency services vehicles in specialized maintenance and mechanical facilities separate from the corporate fleet, it is necessary to ensure appropriate coordination of these two maintenance services as far as the usage of facilities is concerned. It is thus recommended that the Commissioner of Works and Emergency Services and the Commissioner of Corporate Services review the proposed recommendations for servicing the fire and ambulance vehicles within the context of the corporate fleet study and report back to Council in due time.

Fourth, the implementation of the fleet maintenance and mechanical facilities plan for Fire and Ambulance Services is dependent upon the City of Toronto gaining access to the Toronto Hydro Underwriters Road facility. At present, this garage facility is exclusively utilized by Toronto Hydro. The KPMG study envisions a shared usage of this facility between Toronto Hydro and the City of Toronto. It is recommended that the Commissioner of Corporate Services immediately commence discussion with Toronto Hydro on the shared usage of the Toronto Hydro Underwriters Road Facility for vehicle maintenance purposes.

Fifth, the KPMG study was strictly a facilities study which has not examined the staffing issues associated with the development of two new ambulance stations, the proposed elimination of five fire companies from the fleet, the re-allocation of fire apparatus or the construction of six proposed new fire stations in the future. A successful implementation of the study's recommendations is dependent upon adequate and appropriate staffing levels. It is recommended therefore that the Fire Chief and the General Manager of Ambulance Services prepare individual reports on the human resources implications of the KPMG study in view of current staff complements as well as current and anticipated service demands.

Conclusions:

The KPMG Fire and Ambulance Facilities study has outlined an accommodation plan for Emergency Headquarters Office and has provided a blueprint for the most appropriate location of fire and ambulance station facilities, the allocation of fire apparatus and the efficient utilization of fleet maintenance facilities. This report recommends that this blueprint be adopted in principle as a framework for the effective and efficient utilization of fire and ambulance facilities in the amalgamated City of Toronto. It suggests that city staff address and examine a number of issues prior to any implementation of this plan: these issues include the preparation of detailed plans for sequencing the closure of fire stations, the co-location of Ambulance Services in existing fire stations, the improvements to existing fire and ambulance stations and the construction of proposed new fire stations. It proposes that Fire and Ambulance Services prepare a detailed five year/ten year capital plan which identifies the cost associated with these proposed changes as well as the savings to be realized. It also recommends that the human resources implications raised by these proposed facilities changes be examined in more detail and the impact of a potential reduction in five fire companies be assessed.

Contact Name:

Hilda Briks

Strategic and Corporate Policy

392-9716

Michael R. GarrettBarry Gutteridge

Chief Administrative OfficerCommissioner

Works & Emergency Services