HomeMy Public PortalAbout2017-08-24_COW_Public_Agenda PackagePage 1 of 2
COMMITTEE OF THE WHOLE
AGENDA
Thursday,August 24,2017
Chester Municipal Council Chambers
151 King Street, Chester, NS
1.MEETING CALLED TO ORDER.
2.APPROVAL OF AGENDA/ORDER OF BUSINESS.
3.PUBLIC INPUT SESSION ((8:45 A.M.–9:00 A.M.)
4.MINUTES OF PREVIOUS MEETING:
4.1.Committee of the Whole –August 3, 2017
5.MATTERS ARISING:
5.1 Economic Development Strategy Report –Erin Lowe, Economic Development Officer.
5.2 Request for Direction prepared by CAO dated August 17, 2017 regarding Upgrades
to Provincial Roads.1.Appendix A –Best Practice Research2.Appendix B –MGA Excerpt3.Appendix C –Request for Direction dated July 20, 20174.Appendix D –Road List and Map
5.3 Request for Decision prepared by CAO dated August 17, 2017 regarding Paving
Request under Cost Share Agreement.
6.CORRESPONDENCE:
6.1 Report from the Union of Nova Scotia Municipalities and the Association of
Municipal Administrators of Nova Scotia dated August 3, 2017 regarding Municipal
Review of Fire Services in Nova Scotia.
6.2 Letter from Municipality of the District of Yarmouth dated July 24, 2017 requesting
Councils support in the initiative in seeking the placement of a Doppler radar system
in the Yarmouth area to cover southwest Nova Scotia and adjacent waters and to
contact the MP and MLA to request a new radar site to cover the Yarmouth,
Shelburne and Digby Counties.
7.NEW BUSINESS:
Page 2 of 2
7.NEW BUSINESS:
7.1 Information Report –Low Value Procurement Awards –CAO
7.2 Information Report –Economic Development Sponsorship –Erin Lowe, Economic
Development Officer.
7.3 Request for Proposal prepared by Director of Information Services regarding Website
Redesign and Support Services.
7.4 Request for Direction prepared by Recreation and Parks Department dated August
17, 2017 regarding New Ross School Community Use Agreement (appointment at
10:00 a.m.)
8.IN CAMERA:
8.1 Legal Advice –M08238 -Appeal from Development Officer’s Decision.
9.ADJOURNMENT.
ARRANGED APPOINTMENT
10:00 a.m.Chad Haughn, Director of Recreation and Parks regarding New Ross School
Community Use Agreement (item 7.4)
Economic Development Strategy
ED Workshop Outcomes
•Reduced number of ‘Now Priorities’ from eight to four
•Changed EDO role for tourism initiatives to ‘Supporting Role’
•Completed workshop with SSREN to identify outcomes
Now Priorities
•Kaizer Meadow
•Business Park
•Sector Strategy
•Broadband Infrastructure
Core Services
•Investment Readiness Training
•Commercial/Industrial Property Inventory
•Business Retention and Expansion Program
•Capacity Building
•Business Engagement
•Development Regulations
Supporting Role
•Long-Term VIC Strategy
•Visitor Experience
Next Priority
•Destination Marketing Tools
•Value Proposition
•Investment Readiness Analysis/Test
•Communication Strategy
•Marketing Strategy
•Micro, Small and Medium Business Supports
1
VISION
The Municipality of Chester will be a self-sufficient and resilient Municipality, built on the foundation of the character of each of our unique communities, which will provide economic opportunities and
balanced lifestyle for all.
Mission:
Through the provision of high quality services, we will develop an environment conducive to fostering economic opportunities while still preserving our heritage, environment and quality of life.
Objective: The Municipality will work with the local business community, local land owners and partners in economic development to ensure the MODC has all the tools and
infrastructure required to retain and attract local investment opportunities.
Objective: The Municipality will work with the local business community and partners in economic development to ensure the MODC becomes a place where existing businesses
thrive and new business are welcomed and given the best opportunity to succeed.
Objective: The Municipality of the District of Chester understands that building a well-planned, well maintained and attractive community will attract people to live, work and play
in the community. The MODC will work hard with their community and economic development partners to create the community that stands out among other South Shore
communities.
Objective: The Municipality will work with existing businesses and industrial sector partners to assist in promotion of select sectors in order to grow, strengthen and expand the
MODC’s business community.
The Municipality will work with its partners in tourism to become a more recognizable tourism destination by focusing on tourism infrastructure development, product
development and marketing.
The Municipality of the District of Chester will invest in a dedicated Economic Development program and continue to work with local and regional stakeholders to ensure the MODC
is fully engaged as a committed partner in Economic Development. The main goal of the MODC Economic Development program is to promote conditions conducive to fostering
economic prosperity.
Become Investment Ready
Be Open for Business
Live Work and Play –Become the South Shore Community that Stands Out
Focus on Growing MODC’s Economic Sectors
Keep Working Hard to Become Known as a Tourism Destination
Become a Partner in Economic Development.
2
EmploymentLands
Kaizer Meadow
Business Park
TourismDestination
Long Term VICStrategy
DestinationMarketing Tools
Visitor Experience
InvestmentReadiness
Commercial /Industrial PropertyInventory
InvestmentReadiness Training
Sector Strategy
Value Proposition
Communication& Marketing
CommunicationStrategy
Marketing Strategy
BusinessGrowth
Business Retentionand ExpansionProgram Support forSSREN
BusinessSupports
Micro, Small andMedium (MSM)Business Support
BroadbandInfrastructure
Capacity Building
BusinessEngagement
DevelopmentRegulations
3
Now Priority Next Priority Core Service Delivery Supporting Role
EMPLOYMENT LANDS
Actions How does this impact ED Deliverables Outcomes
Kaizer Meadow Rebrand and develop marketing
strategy to align with SUSTANE and
landfill opportunities
Develop Prospectus & Marketing
Material
Leverages opportunities created by Sustane
and unique attributes
Prospectus/Information package Number of
inquiries from
investors
Number of trade
shows attended
# of Lots sold
Total permit
revenues
Increase in
commercial tax
base/Value of
Commercial
Construction
Business Park Work with Council to determine
location
Develop phasing and implementation
Develop Prospectus
Provides clarity and lessens risk for
developers/investors
Streamlines development process
Decision on location of potential
business park
Phasing plan
Selection of site
Completion of
phasing plan
4
Now Priority Next Priority Core Service Delivery Supporting Role
Tourism Destination
Actions How does this impact ED Deliverables Outcomes
Long Term VIC Strategy Conduct study in collaboration with
SSREN
A VIC has the potential to increase the
length of visitor stay, spend and positive
experiences. This can produce return
visitors and positive social media
reviews/references which are a major
source of planning for other travelers.
VIC report Decision by
council on VIC by
December 31/17
Visitor Experience With South Shore Tourism
Cooperative, explore ways to promote
and develop the visitor experience
Increase tourism visitation numbers
Expand range of year-round activities
Increase Occupancy Rates
TBD Increase in visitor
counts
Occupancy rates
Destination Marketing Tools Collaborate with Tourism NS and
novascotia.com website
Collaborate with South Shore Tourism
Cooperative and SSREN for collective
marketing initiatives.
Promote and create awareness of MODC
as a destination
Promotional campaign
Attendance at Saltscapes Expo
Increase in
tourism visitation
numbers
5
Now Priority Next Priority Core Service Delivery Supporting Role
Investment Readiness
Actions How does this impact ED Deliverables Outcomes
Sector Strategy Sector development strategy in
collaboration with SSREN
Provides focus for marketing efforts,
programming (i.e. developing programs
like Agriculture Day)
Provides a plan for EDO to follow.
Defined target sectors for MODC
Develop key growth sectors
action plans with related
stakeholders
Integrate sectors into BRE
program
Identification of
growth sectors
Number of action
plans for
individual sectors
Number of
startup firms from
identified sectors
Value Proposition With SSREN, update statistics and data
for the MODC focusing on current
year data/estimates and MODC labour
shed.
Will consider and target sectors
identified in the sector strategy
Community Profile (update)
Competitive Analysis
Information for developers, realtors and
investors, site selectors as a tool for
attracting new investment
Provides data to answer the question why
invest in MODC rather than somewhere
else!
Easy access to up to-date information on
market and opportunities
Website with data available to
investors
Prospectus package (community
profiles, marketing materials)
Website updated
with data by April
2018
Prospectus
package by June
2018
Investment Readiness Training Training Program for staff and council
on what being Investment Readiness
means, it’s importance, and to achieve
it.
Promotes agility and improves
responsiveness of staff to investment
inquires
Provide investment readiness
training for all MODC staff and
political leaders.
Training
completed by
January 2018
# of participants
in training
program
Investment Readiness
Analysis/Test
Conduct investment readiness analysis
within MODC and key industries
Investment can include new businesses,
attraction of investors to provide capital
and expertise to entrepreneurs, research
opportunities
Investment readiness profile –
identification of gaps and action
plan
Investment
readiness check
list
Commercial/Industrial Property
Inventory
Develop criteria for properties to be
included in database (i.e. vacant land,
vacant structures, underutilized
properties etc.)with SSREN, Province,
real state associations
Development of database
Data readily available to developers,
realtors, brokers, investors
Database of available vacant lands
Database of opportunities for
adaptive reuse of existing,
underutilized, unused properties
(with commercial/industrial
potential)
Database design
and completion
Timeline to be
determined
6
Now Priority Next Priority Core Service Delivery Supporting Role
Communication and Branding
Actions How does this impact ED Deliverables Outcomes
Communication Strategy Social Media Campaign
ED content for website
Increased awareness of MODC as
development location
Website often the first point of contact for
developers and MODC
ED Website (integrated into
MODC site, with links to REN)
Social Media Campaign
ED website
updated January
2018 (in
conjunction with
new MODC
website)
User analytics for
social media sites
Analytics for
website
Marketing Strategy Website
Develop marketing strategy with
special consideration for key growth
sectors identified in the Sector
Strategy.
Increased promotion and awareness of
MODC as development location
Develop image bank and videos for
promotion and marketing of MODC
tourism and ED efforts
Image Bank
Marketing and Promotional
Strategy
50 new
professional
images in
summer 2018 -
focus on
businesses
Marketing
strategy and
Implementation
plan completed
7
Now Priority Next Priority Core Service Delivery Supporting Role
Business Growth
Actions How does this impact ED Deliverables Outcomes
Business Retention and
Expansion Program
Work with SSREN to implement BRE
for MODC
Gather Info
Relationship Building
Expand ED presences and reach
Identify opportunities, challenges and risks
By working with SSREN, reduce number of
interruptions for local businesses
Completed BRE interviews Recommendations
for improvements,
changes,
adjustments to
services or
programming
Direct inventions
with businesses
that participate
# of visits
8
Now Priority Next Priority Core Service Delivery Supporting Role
Business Supports
Actions How does this impact ED Deliverables Outcomes
Broadband Infrastructure Work with community partners,
province, industry and other municipal
units towards improved broadband
service
Explore best practices to identify
models or approaches that can be
used in MODC
Improved broadband service to rural areas Plan for improved rural
broadband
Increased
coverage and/or
improved service
Micro, small and Medium
(MSM) Business Supports
Review of home based business
regulations
Proactive review or development of
regulations related to trends in
emerging industries (cannabis,food
trucks, microbreweries, distilleries)
Simplify and clarify regulations for
entrepreneurs
LUB Review New By-law/MPS
Capacity Building Partner with existing agencies (AEC,
TIANS, NSBI,SSREN, Office of the
employer) to promote existing
programs
Help position local businesses to take
advantage of opportunities for
development &expansion, procurement
opportunities etc.
TBD TBD
Business Engagement Develop engagement opportunities
such as “Council Business Breakfasts”
Restructure Annual Business Awards
Engage with Chamber, business
development organizations
Helps to build relationships with
businesses, opens communication and
discussion
Business breakfasts or
roundtables
Restructured business awards
(eligibility criteria, categories,
voting system)
Schedule for
meetings with
business
development
organizations
Development Regulations Work with Planning to review
Industrial zoning regulations
Work with Planning to review Home
based business regulations
Provides clarity and lessens risk for
developers/investors
Streamlines development process
Lessens risk of land use conflicts
Clarifies requirements, reduces ‘red-tape’
LUB Review New By-law/MPS
Request for Direction
Prepared By:Tammy Wilson, MURP, MCIP, CAO Date August 17, 2017
Reviewed By:Date
Authorized By:Date
CURRENT SITUATION
At the July 20, 2017 Committee of the Whole (COW)meeting, the Committee considered a Request for
Direction Report from Staff, in which direction was requested as to how Council wished to approach the
receipt of request for upgrades to provincial roads under the Service Exchange Agreement (approximately
35.47 km), either consider Paving (50% cost shared with NSDOTIR) or Additional Work (100% funded by
MODC). At this same meeting staff were directed to prepare a report that presented options for council to
consider.
DIRECTION REQUESTED
Direction is requested as to whether:
a)The Committee would like staff to draft a Policy / By-law that outlines a procedure to be followed
in considering upgrades to Roads that fall under the NSDOTIR Agreement, or are “Additional”
work to be funded 100 percent by the Municipality;and
b)The Committee would like staff to draft a Local Improvement By-law to outline funding options
for road upgrades.
BACKGROUND
The Municipality of the District of Chester (MODC) has entered into a Cost Share Agreement with the
Nova Scotia Department of Transportation and Infrastructure Renewal (NSDOTIR).The Agreement
provides for a cost sharing arrangement between NSDOTIR and MODC for the paving of Village and
Subdivision Streets. Such requests are due to be submitted to NSDOTIR by October 31, 2017 for
consideration in the next fiscal year. There are approximately 35.47 km of roads in MODC that fall under
this Agreement.
If approved by NSDOTIR, MODC would be required to fund 50% of the paving costs. Presently MODC
does not have a policy/procedure on how request are to be submitted for Councils consideration prior to
forwarding to NSDOTIR. For example, does Council wish to have a petition submitted with the request, or
are the upgrades to be funded through the general rate or an area rate/charge.? Presently, these matters
are decided on a case by case basis, as there is not an established policy/procedure.
REPORT TO:Municipal Council
SUBMITTED BY:Administration
DATE:August 17, 2017
SUBJECT:Upgrades to Provincial Roads
ORIGIN:Municipal Staff
2 Request For DIRECTION
At the July 20, 2017 COW meeting, the matter of a procedure/policy was discussed and staff were
requested to bring options back to COW for consideration. This report provides options for consideration
by COW.
Attached as Appendix A is a summary of Best Practice Research for Rural Municipalities in Nova Scotia.
DISCUSSION
In considering such request for Road Paving and Road Upgrades factors to consider are:
1.Demand or measure of support of upgrade -An improvement may result in costs being paid for by
property owners, and as such prior to imposing such a charge Council may wish to ensure the support
of the property owners.Methods that could be considered to gauge support:
a.Petition -Some municipal units require a Petition with a minimum percentage in favor of
request. This is often used when the method of payment for the costs is by area rate or
charge in which property owners within a defined area are paying the costs.
A petition would be non-binding and could be either administered by a group of citizens or
by the Municipality (in which case it would be a mailout/in).
b.Plebiscite -A Plebiscite is another method that could be used. This is a more formal and
costly method of gauging public support and while the intention may be to gauge public
support, often the public perceive the results to be binding.
c.Survey -A survey may also be considered and is less formal than either a Petition or a
Plebiscite. A survey would be non-binding
d.District / Area Councillor support -Councillors are elected to represent their constituents.
Thus, a Councillor often knows the views of his or her residents.
The matter of gauging public support may be somewhat dependent on the road to be improved. For
example, if the road to be improved is a collector road and the method of recovery is the general rate,
gauging public support through a petition, plebiscite or survey may be difficult or not desired.
2.Method for payment of costs
The options available are:
a.Uniform Charge –within a defined area (local or entire municipality);
b.Area Rate (within a defined area); or
c.General Tax Rate (or a special rate similar to our waste disposal rate) in which the entire
municipal unit pays;or
d.A combination of either option A and B with option C
3 Request For DIRECTION
The method of payment may be somewhat dependent on the nature of the improvement and the road to
be improved. For example, it may be appropriate to use an area rate or charge to recover costs associated
with a local subdivision road as the users and benefactors are identifiable. Conversely, it may be more
appropriate to use the general rate to recover costs for a through road or a collector road in which the
users are not as easy to identify.
Tools to implement Council’s intent
The following tools are available to Municipality in developing a structure for local improvements and
charging for the same:
1.Ad Hoc -Requests, requirements and method of costs recovery are dealt with on a case by case
basis.
The benefits of this method would be that Council does not commit itself to anyone method to consider
request.
2.Local Improvement By-law -Authority for the establishment of a Local Improvement By-law can
be found in the Municipal Government Act (MGA), Section 81 (Appendix B-Excerpt of MGA). Local
Improvement can cover a variety of infrastructure improvements, including, but not limited to, streets,
sidewalks, storm water, water and wastewater.
A Local Improvement By-law would identify:
The improvements that would be considered (i.e.street upgrades, sidewalks,etc.)
The conditions to be met for Council to consider the same:
o Petition; survey,or written request,
o Content of petition, survey,or written request,
o Improvements at the discretion of Council.
The methods of recovery the costs (i.e.general tax rate, area rate, uniform charge, payment
options such as payment over X number of years, interest rates on amounts owing,etc.)
The benefits of this By-law would be that that it would provide clarity to both councilors, staff and the
public as to what is required to make a request to Council for road improvements. In addition, clarity
around method of charge and payment options would be provided. Flexibility can be built into the By-law
to provide Council with discretion and the ability to vary requirements.
3.Municipal Policy -Council may establish a policy that outlines what conditions need to be satisfied
prior to considering road improvements, if any.Conditions that may be considered are how request
are to be received, whether a petition is required and the options Council may consider in levying a
rate/charge to cover the costs (i.e.petition).
4 Request For DIRECTION
The benefits such a policy would be that it would provide clarity to both councilors, staff and the public as
to what is required to make a request to Council for road improvements.Flexibility can be incorporated
into the Policy to enable council discretion and to vary the requirements.
Method of charge and payment options would be done by resolution or By-law.
Best Practice Research
To explore options for Council’s consideration Best Practice research was conducted.Appendix A provides
a summary of the research findings.
From a review of the Best Practice research it appears that a common practice is to have a Local
Improvement By-law which set out the requirements for Council to consider a Local Improvement and as
well as the method of recovery of the costs.
Most of the By-laws reviewed have:
a.A requirement for a petition to be submitted as a measure of support by the property owners
impacted.
b.A clause that gives the municipality the discretion as to whether they wish to accept the petition
and undertake the work.
c.A clause that gives the municipality the ability to undertake work and levy a charge without a
petition.
d.A clause that outlines the method of recovering costs.
Kings County has developed an approach to both determination of roads to be upgraded and the
payment of upgrades to roads that Council may wish to consider.
In terms of what roads are to be upgraded:
Condition Assessments have been completed on all roads and the roads have been
prioritized. When Kings County Council receives a request,they review it against this list to
determine if the upgrades are a priority.
In terms of payment for upgrades, Kings County uses what is phased “Flexible Recovery”:
The Condition Assessment forms an important component of their Asset Management
approach to road upgrades and thus assist in determining reserve contributions that can be
used to fund future upgrades; and
Local Improvement Charges are used via a Local Improvement By-law.
To identify those roads which are utilized by the subdivision and those J-Class Roads which
are utilized more by the public, traffic Counts are used to determine the traffic counts on
certain streets comparative to the number of houses on the roads. Each property would have
5 Request For DIRECTION
total number of vehicle trips per day. The percentage of traffic counts attributed to abutting
lots would be calculated and that would assist in determining the amount to be charged to
the abutting properties and the amount to be funded from reserve or the general rate.
IMPLICATIONS
Policy
There presently is no policy or procedure in place. Request are handled on a case by case basis.
Financial/Budgetary
With regards to roads under the Cost Shared Agreement, MODC is responsible for 50% of the costs for
paving and 100% for additional work. They may recover costs from property owners over time by uniform
charge, general rate or area rate.
Environmental
n/a
Strategic Plan
This is not within the Strategic Priorities Chart
Work Program Implications
The development of a By-law,policy and/or procedure is not within the present work program. As such,
modifications will be required to the Strategic Priorities Chart to accommodate this work if Council deems
it a priority.Council may wish to add this to the NEXT category and deal with request on a case by case
basis for the October 31, 2017 deadline.
OPTIONS
The following options are available to Council:
1.Direct Staff to prepare a Local Improvement By-law which establishes:
a.Requirements to be met for road upgrade considerations (petition, road condition, etc.);
and
b.Methods for recovery of costs (area rate, uniform charge, reserves, general rate)
2.Direct Staff to prepare a Policy and accompanying procedure which establishes:
a.Requirements to be met for road upgrade considerations;
b.Possible methods of recovering costs
3.To continue with Ad Hoc Approach (Case by Case Basis) for both requirements to be met prior to
considering road upgrades and method of recovering costs.
ATTACHMENTS
1.Appendix A-Best Practice Research Summary
6 Request For DIRECTION
2.Appendix B-MGA Excerpt-Section 81 Local Improvement By-law
3.Appendix C-July 20, 2017 Request for Direction
4.Appendix D-List of Roads under Cost Share Agreement / Map
COMMUNICATIONS (INTERNAL/EXTERNAL)
If Council approves a By-law, public notice will be required between First and Second Reading.
With either By-law or Policy, information on requirements should be posted on MODC’s website and
made available to Councillors and Staff.
Municipal Unit Process for Selecting Roads Method of Cost Recovery Other
MODL Petition (66 2/3rds)Area Rate / Uniform Charge on
properties in charge area
Street Improvement By-law
Cumberland County Petition (50%) or on its own Area rate/ Uniform Charge on
properties that are considered to
benefit
Local Improvement By-law
Colchester County Petition Adjacent properties Local Improvement By-law
Kings County With or without petition.
Technical Approach-Priority list
based upon condition, location
etc.(based upon long term
planning and capital program
development);
Flexible-Area Rate/Charge to
adjacent properties, General Tax
Rate and both a combination of
Area Rate/Charge and General
Tax Rate based upon % of traffic
counts attributed to adjacent
properties and those attribute to
a broader user
Street Improvement By-law
Annapolis County No information
Region of Queens No information
Antigonish County No Information
East Hants Petition (66 2/3rds) or on its
own; at Council’s discretion
Area Rate, Uniform Charge,
frontage charge or use, applied
to lots within a defined areas
Local Improvement By-law
West Hants Petition (75%)Area rate / charge for lots on
street or within defined area
Street Improvement By-law
Yarmouth County Petition (66%) . Petition process
defined. Council retains
discretion to proceed or not.
Council may proceed without
petition in emergency situations
Area Rate/Frontage Charge Local Improvement By-law
District of Barrington Petition (50% of owners). Council
may proceed without petition if
deemed in the best interest of
public
Area Rate / Frontage Charge on
lots in defined areas
Local Improvement By-law
MGA EXCERPT: SECTION 81
By-law regarding payment of charges
81 (1)The council may make by-laws imposing, fixing and providing methods of enforcing payment of
charges for
(a) wastewater facilities or stormwater systems, the use of wastewater facilities or stormwater
systems and connecting to wastewater facilities or stormwater systems;
(b) expenditures incurred for the wastewater management system in a wastewater
management district;
(ba) solid-waste management facilities;
(bc)[(bb)] transit facilities;
(c) the municipal portion of the capital cost of installing a water system;
(d) laying out, opening, constructing, repairing, improving and maintaining streets, curbs,
sidewalks, gutters, bridges, culverts and retaining walls, whether the cost is incurred by the
municipality directly or by, or pursuant to, an agreement with Her Majesty in right of the Province,
the Minister of Transportation and Public Works or any person;
(da) laying out, opening, constructing, repairing, improving and maintaining private roads, curbs,
sidewalks, gutters, bridges, culverts and retaining walls that are associated with private roads,
where the cost is incurred
(i) by the municipality, or
(ii) under an agreement between the municipality and a person;
(e) the municipal portion of the cost of a major tree removal program or the cost of removing
trees from a private property;
(f) the municipal portion of the capital cost of placing the wiring and other parts of an electrical
distribution system underground;
(g) depositing in a special purpose tax account to provide for future expenditures for
wastewater facilities, stormwater systems, water systems, transit facilities or other anticipated
capital requirements.
Request for Direction
Prepared By:Tammy Wilson, MURP, MCIP, CAO Date July 4, 2017
Reviewed By:Date
Authorized By:Date
CURRENT SITUATION
The Municipality of the District of Chester (MODC)has entered into a Cost Share Agreement with the
Nova Scotia Department of Transportation and Infrastructure Renewal (NSDOTIR). The Agreement
provides for a cost sharing arrangement between NSDOTIR and MODC for the paving of Village and
Subdivision Streets. Such request are due to be submitted to NSDOTIR by October 31, 2017 for
consideration in the next fiscal year.
If approved by NSDOTIR, MODC would be required to fund 50% of the paving costs. Presently MODC
does not have a policy/procedure on how request are to be submitted for Councils consideration prior to
forwarding to NSDOTIR. For example, does Council wish to have a petition submitted with the request, or
are the upgrades to be funded through the general rate or an area rate/charge.? Presently, these matters
are decided on a case by case basis, as there is not an established policy/procedure.
MODC received a report from NSDOTIR in January 2017 in which it was noted that road upgrades that are
not paving projects, do not fall under the Cost Sharing Agreement, as such MODC may have to pay 100
percent of the road improvement costs.
DIRECTION REQUESTED
Direction is requested as to whether Council would like staff to bring back a draft procedure / policy
respecting:
a)Cost Sharing requests,which would outline Council’s expectations with respects to how request
are to be received by the Municipality and how they are to be funded; and
b)Request for road upgrades/improvements that may be required to be 100% funded by the
Municipality, which would outline Council’s expectations with respects to how request are to be
received.
BACKGROUND
Cost Share Agreement
MODC and the NSDOTIR have entered into a Cost Share Agreement that provides for cost sharing of
paving of Village and Subdivision Streets which are under the administration and control of the Province.
Some key provisions in the Agreement include:
REPORT TO:Municipal Council
SUBMITTED BY:Administration
DATE:July 20, 2017
SUBJECT:Upgrades to Provincial Roads
ORIGIN:Municipal Staff
2 REQUEST FOR DIRECTION
Paving is defined as “grading, gravelling, culvert work and required upgrading of Village and
Subdivision Street to meet paving standard specifications. ‘Paving’ also means the paving,
repaving, or double chip sealing of the Village and Subdivision Streets.
Request are to be submitted by MODC to NSDOTIR by October 31, 2017 for consideration.
(Request from residents are to be received prior to this date by MODC so that they may be
considered appropriately).
If NSDOTIR approves the request MODC will receive an estimate and have 20 days to confirm
whether they accept the costs estimate
MODC is responsible for 50% if the actual costs for paving and 100% for additional work
Service Exchange Agreement
MODC and NSDOTIR entered a Service Exchange Agreement in 1996. Under this Agreement, 35.47 km of
roads are listed and the agreement specifically states that:
The province shall maintain these roads, including snow and ice control.
MODC pays a per km fee to maintain these roads. NSDOTIR owns these roads.
MODC may cease paying the fee by assuming ownership and thence become responsible for all
future maintenance.
Road upgrades (i.e.shoulder widening) are not considered maintenance. MODC has been advised that
such upgrades / improvement may require 100% funding by MODC.
Municipal Staff have received inquiries respecting the submission of request for road paving, as well as
road upgrades (shoulder widening, i.e. Pig Loop Road). In the receipt of these request direction will be
required as to how Council wishes to determine support for the upgrade / improvement and how the
same is to be funded.
DISCUSSION
In considering such request for Road Paving and Road Upgrades factors to consider are:
1.Demand or measure of support of upgrade. Methods that could be considered to gauge support:
a.Petition-Some municipal units require a Petition with a minimum percentage in favor of
request. This is often used when the method of payment for the costs is by area rate in
which property owners within a defined area are paying the costs.
2.Method for payment of costs. The options available are:
a.Uniform Charge –within a defined area (local or entire municipality);
b.Area Rate (within a defined area);or
c.General Tax Rate (or a special rate similar to our waste disposal rate) in which the entire
municipal unit pays.
The method of payment may be somewhat dependent on the nature of the improvement and the
road to be improved. For example, it may be appropriate to use an area rate to recover costs
associated with a local subdivision road as the users and benefactors are identifiable. Conversely, it
may be more appropriate to use the general rate to recover costs for a through road or a collector
road in which the users are not as easy to identify.
3 REQUEST FOR DIRECTION
Presently there is no procedure or policy respecting how Council will handle such requests and recover
costs. As such, residents and Council members are unable to provide guidance to their constituents
respecting the requirements to be met for consideration or whether the costs will be borne by the local
area or the entire municipality. Request are dealt with on a case by case basis.
The benefits of considering the development of a policy/procedure are:
Council’s expectations are clearly defined for Council, staff and the public. This ensures
efficiency in terms of resident(s) compositing the request and the municipality receiving and
processing the request.
Ensures consistency in decision making respecting requests.
Policy / procedures can include flexibility enabling deviation from the normal requirements in
unique circumstances.
IMPLICATIONS
Policy
There presently is no policy or procedure in place. Request are handled on a case by case basis.
Financial/Budgetary
The municipality is responsible for 50% of the costs for paving and 100% for additional work. They may
recover costs from property owners over time by uniform charge, general rate or area rate.
Environmental
n/a
Strategic Plan
This is not within the Strategic Priorities Chart
Work Program Implications
The development of a policy and/or procedure is not within the present work program. As such,
modifications will be required to the Strategic Priorities Chart to accommodate this work if Council deems
it a priority.Council may wish to add this to the NEXT category and deal with request on a case by case
basis for the October 31, 2017 deadline.
OPTIONS
The following options are available to Council:
1.Direct Staff to prepare a report and recommended policy / procedure for Paving and Road
Upgrade request.
2.Take no action, in which request and associated requirements and funding mechanism will be
handled on a case by case basis.
ATTACHMENTS
1.Cost Share Agreement
2.Service Exchange Agreement
COMMUNICATIONS (INTERNAL/EXTERNAL)
-N/A
REQUEST FOR DECISION
Prepared By: Tammy Wilson, MURP, MCIP, CAO Date August 17, 2017
Reviewed By: Date
Authorized By: Date
CURRENT SITUATION
At the August 3, 2017 Committee of the Whole Meeting Councillor Barkhouse submitted a number of
roads for consideration under the Cost Sharing Agreement with the Nova Scotia Department of
Transportation and Infrastructure Renewal (NSDOTIR) for J Class Roads and Roads under the Service
Exchange Agreement. Municipal Staff were directed to confirm that these roads and the planned
improvements were eligible for funding under this Agreement.
RECOMMENDATION
Direction is requested from the Committee of Whole with respects to proceeding with a request to
NSDOTIR for a Cost Estimate for each road.
BACKGROUND
The Municipality of the District of Chester (MODC) has entered a Cost Share Agreement with the
NSDOTIR. The Agreement provides for a cost sharing arrangement between NSDOTIR and MODC for the
paving of Village and Subdivision Streets. Request are to be submitted by MODC to NSDOTIR by October
31, 2017 for consideration in the next fiscal year.
If MODC’s requests were approved MODC would be required to fund 50% of the paving costs and 100%
of additional work.
The roads for which improvements are requested for funding under this Agreement are:
• Pig Loop Road (shoulder widening- pedestrian safety)
• Chester Shore Road (paving)
• Brunswick Street (paving)
• Prince Street (paving)
• Union Street (paving)
• Main Street (paving)
• Nauss Point (paving)
NSDOTIR has confirmed that these roads fall under the Cost Sharing Agreement.
REPORT TO: Committee of the Whole
SUBMITTED BY: Administration
DATE: August 17, 2017
SUBJECT: Paving Request under Cost Share
Agreement
ORIGIN: Committee of the Whole- August 3, 2017
2 Request For Decision /Direction
DISCUSSION
Presently, there is no Policy established that provides guidance / direction on how request of this nature
are to be received. As such direction is required.
NSDOTIR can provide a rough cost estimate, which may enable Council to determine appropriate method
of cost recovery and thus ultimately indication of public. For example an area rate may warrant a petition,
whereas the general rate may not.
IMPLICATIONS
Policy
There is no applicable policy. Request are handled on a case by case basis.
Financial/Budgetary
To be determined once a cost estimate is provided. MODC would be responsible for 50% of any costs for
work considered paving and 100% of cost associated with additional work.
Environmental
n/a
Strategic Plan
n/a
Work Program Implications
To be determined once direction is given respecting indication of support.
OPTIONS
The Committee may consider the following options:
1. Request a cost estimate on all the roads listed;
2. Prioritize the request and request a cost estimate on the top 1 or 2; or
3. Not take any action.
ATTACHMENTS
None
To: Kelliann Dean, Deputy Minister, Department of Municipal Affairs
Deputy Mayor Laurie Murley, President, UNSM
Marie Walsh, President, AMANS
Rod Nielsen President, Fire Services Association
From: Fire Services Study Steering Committee
Date: August 3, 2017
Re: Municipal Review of Fire Services in Nova Scotia
As you are aware, the Union of Nova Scotia Municipalities and the Association of Municipal
Administrators of Nova Scotia, with the financial support of the Province of Nova Scotia,
engaged a consultant to facilitate a frank and open discussion on fire services. The consultant
was asked to meet with representative stakeholders to ascertain and prioritize key issues at the
local level, to consider opportunities to address these issues, and to facilitate the sharing of
best practices, lessons learned and possible areas for collaboration.
The work of the consultant was overseen by a Project Steering Committee comprised of
representatives from UNSM, AMANS, the Fire Services Association and the Fire Marshal’s
Office. The task of the Project Steering Committee was to select the consultant, to ensure the
terms of reference were met and to facilitate the work of the consultant.
Pomax Consulting was engaged to undertake the review. Their report is attached in Appendix
B.
Project Steering Committee Observations
The Consultant has fulfilled the terms of reference. The Project Steering Committee recognizes
the hard work of the consultant in documenting stakeholders’ views and concerns. The
recommendations of the consultant make sense, in that the issues are complex and not solved
by one group alone. The need to work together is paramount.
During the stakeholder consultations, it became evident that there were varying degrees of
understanding with respect to fire services in Nova Scotia, particularly around authority and
areas of responsibility. Because these views are reflected in the report, the Committee felt it
was important to provide the accurate information along with the reported views in Appendix
A. It is important that those reading the report understand that the views presented by the
participants are not necessarily accurate.
Next Steps
The Project Steering Committee makes the following recommendations:
• A stakeholder committee comprised of representatives from municipalities, the
province and fire services be struck;
• The first order of business for the steering committee will be to develop an action plan
to explore the following as it relates to fire services:
o Funding model
o Fire service standards
o Organizational structure
o Milestones and timelines
o Short and long-term goals
o Clarification and education of roles and responsibilities (i.e. provincial legislation)
o Identify areas for collaboration (i.e. fire service coordinators)
Fire services are important for all Nova Scotians. Municipalities, fire services, and the province
must work together to address challenges and seize opportunities to strengthen this important
emergency service.
Sincerely,
Members of the Fire Service Review Project Steering Committee:
Rod Nielsen, President, Fire Services Association of Nova Scotia
Wayne Thorburne, Councillor, Town of Bridgewater
Bonnie Coulter, Director of Corporate Services, Town of New Glasgow
Shawn Andrews, Director of Fire, Emergency, IT Services, Municipality of Guysborough
Fred Jeffers, Nova Scotia Fire Marshall
Anne Partridge, Executive Director, Grants and Programs, Municipal Affairs
Janice Wentzell, Executive Director, Association of Municipal Administrators
Betty MacDonald, Executive Director, Union of Nova Scotia Municipalities
1 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
POMAX Report on Consultation
Points of Clarification Highlighted by
Fire Services Review Project Steering Committee
Funding
# Fire Services Perspective What we heard about the Impact on Fire Services What we heard about the Impact on Public Safety
1. Fundraising Volunteer support for fundraising is declining due
to other commitments, increasing time required
for other department duties such as training,
equipment maintenance and a reluctance to
participate in fundraising activities
Fire services are the only community service
required to fundraise for equipment and
operational needs Fire services are not the only
community service required to fundraise for
equipment and operational needs
Recruitment and retention of volunteers may suffer
if fundraising is required and impact the number of
volunteers available to respond to emergencies
2. Reimbursement for
delivering services are
perceived as provincial
responsibilities, (i.e.,
medical first responder,
vehicle extrication,
hazardous materials, hydro
responses and standby,
traffic control) These
services are generally not
a provincial responsibility
but rather private or
municipal.
Fire departments respond to these incidents but
must fund training and equipment from within
with no reimbursement from the province
Volunteers are required to take on these extra
responsibilities and related training
Volunteers are not required to take on these
extra responsibilities, they chose to do so
Local taxpayer is subsidizing provincial services with
funds that may be required for community fire
protection needs and circumstances
The province does not provide any of these
services, they are provided by fire services through
registration with the municipality
2 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
POMAX Report on Consultation
Points of Clarification Highlighted by
Fire Services Review Project Steering Committee
Funding
# Fire Services Perspective What we heard about the Impact on Fire Services What we heard about the Impact on Public Safety
3. Provincial funding – a
matching capital fund is
available to fire services at
two year intervals but it
requires initial funding of
equipment by the fire
department which is then
reimbursed by the
province In actuality this
funding is available at
3year intervals
Fire departments in less affluent communities
cannot afford the initial expense to purchase or
replace equipment and apparatus
Equipment may be kept in service long past its life
expectancy
Apparatus may not be reliable to respond to
emergencies. Possible delays in response or failure
to operate at an emergency scene
Fire fighters may use equipment (e.g. breathing
apparatus) that should no longer be in service. A
health and safety issue.
4. Area Rated Taxation Model
(Taxes for some services
[recreation, transportation,
fire, etc.] may be
calculated differently for
the area that receives a
specific or greatest benefit,
rather than generally
sharing the cost across the
whole municipality.)
Some communities are well funded while many
do not have the tax base to provide resources
adequate to meet the needs and circumstances of
the community
Some fire departments have to fund raise to
provide basic operational needs such as fuel for
the vehicles
Communities with strong assessment base and
high community involvement support their fire
services
Funding is determined by geographical
boundaries (each ratepayer association coverage
area) not by risk in a given community
Fire departments may hold onto their boundaries
regardless of impact on response times because
they want the funding from that particular area
There is a risk that some communities are not able
to provide a fire protection system appropriate to
their needs and circumstances even within the same
municipal jurisdiction Provision of the “best
available” response times is superseded by local
politics and funding interests
3 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
POMAX Report on Consultation
Points of Clarification Highlighted by
Fire Services Review Project Steering Committee
Funding
# Fire Services Perspective What we heard about the Impact on Fire Services What we heard about the Impact on Public Safety
5. Accountability for funding There is no mandated accountability mechanism
regarding fire service funding
Some fire departments are subject to strict and
expensive auditing requirements while others are
not required to provide any
Uncertainty regarding how funds are spent and the
impact on adequacy of community fire protection
Funding
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public Safety
1. Funding for fire services is done
in silos per individual fire
departments in a given
municipal unit. Municipalities
are required to collect funds as
determined by the local
ratepayers’ association with no
means to rationalize fire service
funding within the municipal
budgeting process.
Elected representatives and municipal
administrators have little control or authority
over funds provided for fire protection.
Municipal governments are not able to effect
potential efficiencies over the broader municipal
unit, i.e., fire department insurance coverage,
rationalization of equipment and apparatus,
provision of specialized services.
Fire safety concerns brought to elected municipal
officials are not addressed
The community may not receive the best possible
fire protection with available funding.
Best approach to fire safety in a community is not
provided – i.e., fire prevention/public education
as well as emergency response
2. Inequity of funding – funding of
a fire department is often
determined by the economic
circumstances of individual rate
payer areas within a municipal
unit including such issues as
property assessment values,
financial demographics,
perceived fire protection needs
Fire departments that are well funded under the
current system protect the status quo
Fire departments that provide fire service in
economically stressed areas are not funded to
the level required to meet the needs and
circumstances of that area
Many municipalities are experiencing
infrastructure deficits but are prevented from
rationalizing the cost of fire services and
Impact on purchasing of updated/reliable
apparatus and equipment required for
community and firefighter health and safety
4 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Funding
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public Safety
and political influence of fire
commissioners
equipment because fire departments continue to
operate independently and in silos
3. Volunteer cost savings Municipalities recognize the low cost of a
volunteer fire service but are intimidated by the
fear of resignations if they attempt to exert
control over service levels or standards of service
Introduction of appropriate service levels and
delivery standards are inhibited
4. Reimbursement for delivering
services deemed provincial
responsibilities, (i.e., Medical
First Responder, vehicle
extrication, hazardous materials,
hydro responses and standby,
traffic control) These services
are generally not a provincial
responsibility but rather private
or municipal.
EHS is a private business* but municipalities are
subsidizing this enterprise through provision of
emergency first responder services in their
communities
Funding for local fire service needs are limited in
order to fund provincial responsibilities
*EHS is actually contracted to the province and committed to province-wide service standards.
Service Delivery Standards
# Fire Service Perspective What we heard about the Impact on Fire Services What we heard about the Impact on Public
Safety
1. No province wide standardized
training program/curriculum
(most voluntarily follow NFPA
1000 series firefighter training)
Fire departments develop their own programs in
isolation
Member departments of mutual aid systems may
have different levels of training
Incident commanders cannot be confident in the
abilities of members responding departments
Community members cannot assess the
competency of their fire department members
Health and safety concerns for firefighters and
the public
Registration of a fire department does not ensure
the fire department can competently provide the
services it is funded for or meet community
expectations
2. Insurance coverage for
volunteers
Workplace insurance is not required to be
provided in all municipalities
Some communities provide insurance through
the Workers Compensation Board while others
Reluctance to become a volunteer firefighter
depending on availability and type insurance
coverage
5 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Service Delivery Standards
# Fire Service Perspective What we heard about the Impact on Fire Services What we heard about the Impact on Public
Safety
rely on private insurance such as Volunteer
Firefighters Insurance Service (VFIS)
Some communities do not provide insurance of
any kind to volunteers
Hiring and retention of volunteers impacts
response capabilities
3. Development of standards Development of standards should have input
from the fire service practitioners
Ensures realistic and practical standards to be
employed in communities
Ensures communities are getting the services
they are funding
4. If service delivery standards
are developed they need to be
flexible to meet local
community needs and
circumstances
Requires fire departments to clearly define and
identify their capabilities to the community
Enables a community to understand, define and
fund the level of services appropriate to the
needs and circumstances of that community
5. Without standards fire
departments and members are
subject to potential legal
liabilities
Without approved service delivery standards fire
potential liabilities are increased
In the absence of local standards fire
departments will be subject to scrutiny against
industry wide standards
Potential impact on hiring and retention of
volunteers
6. Enforcement of standards -
there is no provincial body to
enforce standards if they are
developed
Adoption of standards would be voluntary in
each fire department
Community may not have the level of protection
they assume or expect
Service Delivery Standards
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public Safety
1. Knowledge and understanding
of standards – service delivery
and performance
Many municipal representatives do not have a
clear understanding of what service delivery and
performance standards are regarding the fire
service and what the impact would be on their
municipalities and the fire services
Lack of knowledge and misunderstanding of fire
service standards results in a fear of
Best practices/delivery standards that benefit
community fire safety are not implemented
6 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Service Delivery Standards
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public Safety
implementing standards as financial concern and
the potential to lose volunteers
If the province unilaterally introduces standards
for the fire service, there may be significant
impacts to municipalities
The fire services in Nova Scotia are dependent on
volunteers and if onerous standards are
introduced then volunteers may decide to leave
the fire service and recruiting new volunteers
may become difficult
2. No provincial
guidance/direction standards
for fire service operations
There are provisions within the
MGA that provide opportunity
for municipalities to provide
guidance and direction for fire
services (MGA Section 296)
There is a range of fire service delivery and
performance standards across the province
depending on the understanding/interest of the
local fire service provider, the rate payer
association members and the municipal unit
Municipal councilors have no means to measure
what they are funding and what they are
receiving regarding the provision of fire services
from the independently operated fire
departments
In the absence of provincially recognized
standards the default position in legal actions
become general fire industry standards such as
NFPA for training and deployment
Municipalities do have the means to measure
what they are funding and what they are
receiving for services through the MGA section
296
Coordination of response, incident command and
equipment resources during mutual aid
activations are affected
The MGA Section 302 has provisions for Mutual
Aid and Section 296 has provisions for
implementation of services
7 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Organization
Structure/Governance
# Fire Service Perspective What we heard about the impact on Fire
Services
What we heard about the Impact on Public
Safety
1. The Municipal Governance Act
states that a municipality may
provide fire services - there is no
requirement to do so
Municipal Government Act states
“A municipality may maintain
and provide fire and emergency
services by providing the service,
assisting others to provide the
service, working with others to
provide the service or a
combination or means”, 1998, c.
18, s.293
Section 294 and 295 also have
provisions where there are no
fire services and they are offered
by a service provider the
municipality shall register them.
Fire departments operate independently with
little or no provincial or local government
oversight
Local municipal governments can divest
themselves of responsibility for fire protection
by registering a fire department to provide
service
There is no system of responsibility or
accountability from the province through the
municipal jurisdiction to the individual fire
departments
The province has through legislation (MGA
Section 296) enabled the municipalities to have
oversight of fire and emergency services
Community members may or may not receive or
understand the fire protection they expect vs.
actual service level being provided
Over expectation of emergency response
capabilities may result in failure to take personal
responsibility for fire safety
2. There is no designated provincial
position/agency responsible for
fire service operational matters
Local fire departments deal in isolation with:
• Volunteer recruitment and retention
• Assistance with mutual aid
administrative and operational matters
No advocacy for fire service operational matters
at the provincial level
No enforcement of provincial mandates such as
municipal addressing
No direction for fire service standards or service
levels so fire departments develop their own
standards in isolation
Long term viability of the volunteer fire service in
jeopardy and no affordable alternative
Mutual aid systems may not adequately address
the fire protection requirements in a community
Fire service matters that would enhance the
effectiveness and efficiency of local fire services
are not understood or acted upon by the
provincial government
Citizens may receive less than expected fire
protection
8 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Organization
Structure/Governance
# Fire Service Perspective What we heard about the impact on Fire
Services
What we heard about the Impact on Public
Safety
A common/consistent point of contact within
the provincial government would assist the
predominately volunteer fire service
representatives in efforts to bring fire service
matters to the province
The province has assisted and provided fire
services with recruitment and retention models
that can be utilized.
There is an advocacy group that has been
provided through the Fire Safety Act and
Regulations (Nova Scotia Fire Services Advisory
Committee) that has a mandate to advise
government on fire service issues.
At present fire services do have a common
point of contact (Fire Services Association of
Nova Scotia) who have direct access to the
Nova Scotia Fire Service Advisory Committee
and or Council.
Without consistent or recognized standards
community members do not know what
level/quality of service they are receiving
3. Fire departments operate in silos
within municipal units
Each fire department is required to organize
itself as an incorporated non-profit organization
and develop/organize its own governance
model, policies, funding, equipment, staffing
Fire departments purchase equipment and
provide services based on their immediate needs
and agendas
Duplication/overlapping of resources
(equipment, staffing, station, service provision)
within a municipal jurisdiction and/or
geographical area
The closest fire station(s) may not respond to
emergency calls impacting response times and
number of responders
Failure to rationalize resources over a broader
geographical area may result in inadequate
funding of other fire protection components such
as fire prevention and public education
Fire protection Is not delivered efficiently and
effectively in many communities in close
proximity to each other
9 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Organization
Structure/Governance
# Fire Service Perspective What we heard about the impact on Fire
Services
What we heard about the Impact on Public
Safety
Fire chiefs are elected by their associations. The
introduction of fire system standards by fire
service managers is impeded by the political
nature of their positions
Fire departments and their boards are
responsible only to the local ratepayers’
association
There are provisions in the MGA Section 296
that permits municipalities to assist fire services
in the development, governance, policy and
funding models
Fire protection in a given jurisdiction may not
meet the actual needs and circumstances of the
community
Organizational
Structure/Governance
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public
Safety
1. The Municipal Government Act
states that a municipality may
provide fire services - there is no
requirement to do so
The Municipal Government Act
states “A municipality may
maintain and provide fire and
emergency services by providing
the service, assisting others to
provide the service, working with
others to provide the service or a
combination or means, 1998, c.
18, s.293
Section 294 and 295 also have
provisions where there are no
fire services and they are offered
There is no direction from the province to assist
municipal governments in the delivery of fire
services in their communities including
organizational model, level of services, funding.
Municipalities rely on local fire departments to
register to provide services resulting in a variety
of service types and levels of service within the
municipal structure.
The province has provided legislation Section
296 to allow municipalities to assist fire services
in the delivery of fire services.
Community members may not get the services
they expect or assume they have.
Communities may not get the level of service
adequate or appropriate to the needs and
circumstances of that area.
10 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Organizational
Structure/Governance
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public
Safety
by a service provider the
municipality shall register them.
2. There is no designated provincial
position/agency responsible for
fire service operational matters
Elected officials and municipal managers have no
direct access point to the provincial government
to deal with fire service operational matters
There is an advocacy group that has been
provided through the Fire Safety Act and
Regulations (Nova Scotia Fire Services Advisory
Committee) that has a mandate to advise
government on fire service issues.
Fire safety concerns and initiatives that would
benefit community fire safety are not acted upon
or implemented
3. Fire commissioner role, authority
and independence
Fire commissioners have wide ranging authority
and can operate independently of any municipal
oversight in the administration and operation of
the fire department, yet municipally elected
officials and senior managers are held
accountable by the taxpayer for fire service
administration and delivery
Fire commissioners have the authority to provide
fire services beyond the municipality with which
they are registered and this could result in one
municipality subsidizing fire services in another
municipality
Fire Commissioners/Fire Marshals do not have
wide ranging authority and are limited to the
authority provided to them in legislation which
at present provides them with no
administrative or operational authority of fire
departments.
Lack of municipal oversight could result in
inadequate fire protection
4. Transparency and Accountability
– municipalities purchase fire
Elected officials are held accountable by the
community for fire services but have no
Fire safety concerns brought to elected municipal
officials are not addressed
11 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Organizational
Structure/Governance
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public
Safety
services through the registration
of a fire service provider with
little influence on fire
department administration,
operations or quality of service
authority over fire department administration,
operations or quality of service
While municipal governments have little control
over fire departments they are subject to
potential legal liabilities regarding fire protection
matters
There are provisions within the MGA Section
296 that permits municipalities to oversight of
fire services through policy implementation
5. Fire departments operate in silos
within a municipal unit
Municipalities are not able to implement service
levels, performance standards, or training
standards in a meaningful way
Municipalities are not able to avoid unnecessary
duplication of equipment in adjacent fire
departments
Municipalities are not able to develop shared
specialized services in the individual fire
department within the municipal unit or
between adjacent municipalities.
Municipalities have no opportunities to share
best practices
Initiatives to conduct community wide risk
assessments or develop master fire plans on a
broad community basis are inhibited by localized
special interest groups/fire departments
There are provisions within the MGA Section
296 that permits municipalities to oversight of
fire services through policy implementation
Fire safety is not delivered at the optimal level for
that community
Communities may not have access to specialized
services required by the community
FINAL REPORT
Municipal Review of Fire Services in Nova Scotia
Pomax Consulting Inc.
April, 2017
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
i www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Contents
Foreword ..................................................................................................... 1
Project Background ...................................................................................... 2
2.1 Governance and Authority for Fire Services in Nova Scotia ................................. 3
2.2 Methodology ......................................................................................................... 5
2.2.1 Stakeholder Survey ...................................................................................... 5
2.2.2 Document Review ........................................................................................ 7
Consultation Meetings ................................................................................. 8
Challenges, Options, Recommendations ..................................................... 20
4.1 Discussion ............................................................................................................ 22
4.2 Options ................................................................................................................ 24
4.3 Best Practices ...................................................................................................... 28
4.3.1 Community Fire Risk Assessments ............................................................. 28
4.3.2 Fire Master Planning .................................................................................. 28
4.3.3 Fire Service Coordinators ........................................................................... 29
4.4 Discussion—Key Issues........................................................................................ 29
Recommendations ..................................................................................... 30
Table 1: Project Steering Committee ............................................................................... 3
Table 2: Stakeholder Groups Invited to Participate ......................................................... 6
Table 3: Online Survey Participants Indicating Intent to Attend Facilitated Meetings .... 6
Table 4: Most Important Issues for Fire Services ............................................................. 7
Table 5: Facilitated Consultation Meeting Attendance* .................................................. 8
Appendix A: Online Survey
Appendix B: Representation at Consultation Meetings
1 www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Foreword
In the interest of ensuring the conclusions and recommendations are appropriately interpreted, an
introductory explanation is necessary.
When the consulting team presented the draft report to the UNSM and AMANS steering committee, the
greatest discussion centred around the committee’s impression that the consultants were placing the bulk
of responsibility for the current fire services circumstances squarely on municipalities. That isn’t the case.
Even though we clearly state that existing legislation provides municipalities with the authority they need
to determine their own destiny when it comes to establishing and operating fire services—alone or with
others as the legislation states—we also acknowledge the practicality of taking action within that
authority.
The responsibility for the existing state of fire services in Nova Scotia falls to three parties:
• the province, which should provide greater support to municipalities in the form of regulation,
expertise, and monitoring;
• the fire services, some of which we heard are possibly over resourced and politically motivated to
protect their interests while others are lacking for apparatus and equipment; and
• the municipalities.
Even though one of our conclusions is that provincial legislation places the authority for the level and type
of fire services with municipalities, we are also fully aware that financial and political considerations often
complicates exercising that prerogative. So, while we identify that the Municipal Government Act places
authority with municipalities, readers should not extrapolate statements of that nature to the point of
‘blaming’ municipalities. The responsibility for fire services in Nova Scotia lies with the province,
municipalities, and fire services. And even though we identify facts, there is no intention to place blame.
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Project Background
Pomax Consulting was engaged by the Union of Nova Scotia Municipalities (UNSM), and the Association
of Municipal Administrators, Nova Scotia (AMANS) to conduct a review of Nova Scotia’s fire services from
the municipal perspective.
The Intent of the Assignment
• Conduct a review of fire services in Nova Scotia:
Facilitate discussion with representative stakeholders.
Identify and prioritize issues, concerns, and opportunities for municipalities.
Consider options to address issues.
Facilitate sharing of best practices, lessons learned, and possible areas for collaboration.
The project objectives included identifying
• (and) prioritizing key issues in the delivery of fire services, including the perspective of fire service
providers, and those who oversee and finance fire services at the municipal level;
• possible options to address issues;
• best practices in the delivery of fire services in rural and urban areas; and
• areas for better collaboration.
Project deliverables encompass
• a report outlining results of the consultations and participants’ issue identification; and
• a final report on the findings of the consultations, including the list of prioritized issues and
recommended possible solutions.
Accountabilities
The consultant was accountable to the project steering committee (the steering committee), and
responsible for
• designing the consultation engagement process; and
• managing the project methodology, consultations, and project logistics.
The project steering committee (Table 1) provided advice, local knowledge, and process consultation.
Additional Information Provided in the Request for Proposals
• The Municipal Government Act (MGA) does not require municipalities to provide fire suppression
services.
• Municipalities currently provide varying levels of fire services across the province.
• The public expects municipalities to offer adequate levels of service.
• There have been long-standing issues with fire services throughout the province.
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• A provincial report on fire services served as background on issues but was not the primary focus
for this exercise.
Mandate
The scope of work did not include conducting an extensive literature review of previous reports or
research to support best practices, areas for collaboration, or possible solutions. The mandate was to
• lead a review to identify and prioritize issues, concerns, and opportunities for municipalities as
they relate to fire services;
• facilitate an open and frank discussion with representative stakeholders to ascertain and prioritize
key issues at the local level; and
• consider opportunities to address these issues, and to facilitate the sharing of best practices,
lessons learned, and possible areas for collaboration.
Stakeholders
This project provided an opportunity for stakeholders from member municipalities and fire services to
offer their views, concerns, and knowledge about fire services. We want to thank all participants for their
valuable feedback. We also appreciate the steering committee’s support, advice, and assistance with the
consultation meetings.
Table 1: Project Steering Committee
Betty MacDonald Executive Director, Union of Nova Scotia Municipalities
Shawn Andrews Director of Fire, Emergency, and IT Service
Municipality of the District of Guysborough
Harold J. Pothier
Fire Marshal
Department of Municipal Affairs, Province of Nova Scotia
Councilor Wayne Thorburne Representing the Union of Nova Scotia Municipalities
Bridgewater, Nova Scotia
Bonnie Coulter Representing the Association of Municipal Administrators
Director of Corporate Services, Town of New Glasgow
Rod Neilsen President, Fire Service Association of Nova Scotia
2.1 Governance and Authority for Fire Services in Nova Scotia
In Nova Scotia, as in many other provinces, the decision as to community fire service provision is made by
each municipality. The authority for this determination is found in the Municipal Government Act which
states: “A municipality may maintain and provide fire and emergency services by providing the service,
assisting others to provide the service, working with others to provide the service or a combination of
means”, 1998, c. 18, s.293.
As in other provinces, the legislation uses the word ‘may’ rather than ‘shall’, which means that
municipalities are not compelled to provide fire and emergency services.
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Section 294 of the Act says
Registration as fire department
294 (1) A body corporate may apply to a municipality for registration as a fire department.
(2) A municipality shall not refuse to register a body corporate that complies with this Act if the
(a) municipality is satisfied that the body corporate is capable of providing the services it offers to
provide;
(b) body corporate carries liability insurance, as required by the municipality;
(c) body corporate does not provide the fire services for profit; and
(d) municipality does not provide the same services for the same area.
(3) A fire department, including a fire department of a municipality, village or fire protection district,
shall register in each municipality in which it provides emergency services.
(4) A registered fire department shall provide the municipality with a list of specific emergency
services it will endeavour to provide and the area in which the services will be provided.
(5) Registration continues in force until withdrawn by the municipality for cause or the fire
department requests that the registration be revoked.
And section 296 says, with respect to policies
Policies
296 (1) The council may make policies respecting full-time, volunteer and composite fire departments
and emergency service providers in the municipality.
(2) Policies for fire departments and emergency service providers may include
(a) requirements and procedures for registration;
(b) personnel policies with respect to those members who are employees of the municipality;
(c) the manner of accounting to the council for the use of funds provided by the municipality;
(d) an annual meeting to report to the public respecting fire and emergency services;
(e) such other matters as are necessary and expedient for the provision of emergency services in
the municipality.
(3) The council may require proof of compliance with its policies before advancing any funds. 1998,
c. 18, s. 296.
Emergency fire response, in the majority of municipalities across the province, is delivered by volunteer
departments. The Halifax Regional Municipality (HRM) operates a composite fire department with a
contingent of full-time firefighters in urban areas as well as in a number of locations where volunteer
availability is scarce during some hours. The Cape Breton Regional Municipality Fire Services consists of a
mix of career and volunteer services spread throughout the municipality.
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2.2 Methodology
Pomax used qualitative and quantitative research methods to gain an understanding, from the municipal
perspective, of the most significant issues and opportunities for fire services in Nova Scotia. Methods
included consultation with the steering committee, an online survey (Appendix A), facilitated meetings,
research, relevant report and documentation review, and written feedback submitted to Pomax.
In consultation with the steering committee, Pomax engaged mayors, wardens, senior municipal
administrative staff, clerks, treasurers, elected officials, fire chiefs, fire service coordinators, Fire Service
Association of Nova Scotia board of directors, and provincial representatives in the review (Appendix B):
Principles used to ensure an effective consultation included
• Inclusivity: anyone with an interest in the issue, as identified by the steering committee, was
invited and encouraged to be involved in the process.
• Transparency: making certain that participants understood the objectives, and how their input
may influence fire services’ decisions.
• Timeliness: there was opportunity to participate, provide input, and engage with the project
team.
• Collaboration: all those involved had the opportunity to exchange views and information, to
listen, and to have their concerns and ideas heard.
• Adaptability: the process offered an online survey and in-person meetings as methods to
encourage involvement. Some municipal officials took the opportunity to telephone the
consultants to express their views, while others used email.
• Respectfulness: the process respected the diverse values, interests, and knowledge of those
involved.
• Accountability: Pomax is accountable to the steering committee and stakeholders for effective
consultations that achieve the desired outcome of gaining an understanding, from the municipal
and fire services perspective, of the most significant issues and opportunities in relation to fire
services.
2.2.1 Stakeholder Survey
The project steering committee provided Pomax with contacts for over 250 individuals with an interest in
Nova Scotia fire services. Through distribution of an online survey (Appendix A), the contacts were invited
to attend, or have representation attend, a facilitated meeting. The survey served as an RSVP, and
included a polling question as to the most important fire services issues. The letter requesting
participation included an invitation for recipients to forward the request to other interested
representatives.
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Table 2: Stakeholder Groups Invited to Participate
Stakeholder Groups #
Municipal Chief Administrative Officers, Clerks, Treasurers 55
Elected Officials 51
Fire Service Coordinators 8
Fire Service Association Board of Directors 40
Fire Service Association Representatives 69
Association of Nova Scotia Villages 30
Total 253*
*Does not include the number of times the invitation was forwarded by a recipient
• Consultations between Pomax and the steering committee identified overarching issue
categories, which were then listed in the survey.
• Potential meeting participants were asked to complete the survey in advance of the consultations.
• Respondents were requested to identify, from the topic categories, the three most important fire
service concerns from municipal or fire service perspectives (Table 4).
• The advance poll was conducted in order to gain a general overview of the most important issues
and allowed Pomax staff to ensure the consultations remained focused, while also providing
opportunity for discussion of other issues.
• Issue categories were crafted to ensure they did not limit survey or consultation feedback.
• Of the 253 stakeholders sent the survey and invited, 109 responded; 97 indicated that they would
attend a facilitated meeting (Table 3).
• Actual attendance for all meetings was 130, or 51.4% of the 253 invited to participate (Table 5).
Table 3: Online Survey Participants Indicating Intent to Attend Facilitated Meetings
Participants % Count
Municipal elected officials, and
administration staff 57.7% 56
Those involved in the delivery
of fire services 42.3% 41
*12 skipped the question
• Of the 109 participants who completed the survey, 89 responded to the top three most important
issues
31 or 34.8% percent indicate that funding fire services is the most important issue.
21% selected fire service standards as the most important.
19.1% chose organizational structure as the most important.
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Table 4: Most Important Issues for Fire Services
What are the most important issues for fire services? Very
Important
Moderately
Important
Least
Important Total
Governance and oversight 10 8 16 34
Organizational structure (reporting relationship between
departments and municipalities) 17 13 10 40
Fire service standards 19 17 10 46
Fire services coordinator role and responsibilities 0 10 13 23
Provincial/municipal relationship related to fire services 3 15 11 29
Adequacy of fire-service operations 8 8 14 30
Fire service funding 31 14 5 50
Other issue (identified by respondents): 20
Honorariums Training
Volunteer recruitment and retention Capability of service delivery
Firefighter safety Number of fire stations
Ratepayer relationships Collaboration/mutual aid agreements
Amalgamation
2.2.2 Document Review
In the course of conducting this project, Pomax reviewed reports and other information that served as
background knowledge for the discussions with stakeholders. The scope of work did not include
conducting an extensive literature review of previous reports or Acts of Legislation. The documents
reviewed include:
• Fire Safety Act 2002. c. 6, s. 1.
• Fire Safety Regulations, made under Section 51 of the Fire Safety Act
• Fire Services Senior Officials Committee Report, December 14, 2012
Nova Scotia Fire and Associated Services
• Annual Reports of the Office of the Fire Marshal
• Municipal Government Act, Part X Fire and Emergency Services
• List of fire departments in Nova Scotia
• Fire Service Association of Nova Scotia Discussion Paper
Standards of Service, Nova Scotia Fire Service, (B MacKinnon, CD, May 2004)
• Report of the Nova Scotia Legislature Select Committee on Fire Safety (J. Carey, MLA, 2002)
• Setting the Course: A Report to Address Fire Service Training in Nova Scotia (F. G. Holllett, 1994)
• Progress on Recommendations Contained in the Interim Report to the House of Assembly by the
Select Committee on the Volunteer Fire Service (J. C. Moody, 1984)
• The Graham Commission (1974), Chapter 14: Fire Protection (J. F. Graham, 1974)
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Consultation Meetings
The project steering committee advised the Pomax team members that municipal representatives and
fire service participants may be more candid if separate meetings were held. Therefore, eight meetings
were facilitated at four locations throughout the province, with a total of 130 attending (Table 5). Survey
responses indicated that most municipalities would be represented at one or both of the consultation
meetings (Appendix A). At each venue, municipal representatives met at 2:00 PM, and those involved in
the delivery of fire services met at 6:00 PM.
Open forums are an effective method of encouraging stakeholder dialogue, collaboration, and
information sharing. Meeting formats were informal in order to engage participants with specific foci
resulting from the earlier survey. Each meeting was opened by explaining the reason for the project,
objectives, and how the information gathered would be used. The results of the online survey were
discussed by the facilitators, and attendees were invited to comment. This proved to be a successful
approach, as participants responded by offering meaningful information, insights, and viewpoints.
Table 5: Facilitated Consultation Meeting Attendance*
Location Date Municipal #
Attending
Fire Service #
Attending
Steering Committee
Member Attending
Bridgewater September 12 33 17 Wayne Thorburne
Kentville September 13 19 6 Harold Pothier
Truro September 14 19 22 Bonnie Coulter
Baddeck September 15 7 7 Shawn Andrews
*includes occasions where participants attended both meetings
The stakeholder survey identified primary fire service delivery issues. Consultative sessions confirmed that
the three topics identified in the survey (Table 4) are key stakeholder concerns.
1. Fire services funding
2. Fire service standards
3. Organizational structure/governance (reporting relationship between departments and
municipalities)
Consultation session participants told us that
• There is a great deal of misunderstanding and/or unfamiliarity (politically, administratively, and
within the fire service) regarding the multitude of delivery mechanisms, and levels of fire service,
across the province. This misunderstanding and lack of awareness is a result of municipal and fire
service silos with few forums or opportunities for communicating and sharing of ideas and best
practices.
• Fire service matters do not seem to be “top of mind” for the province and local governments, or
the public, resulting in varying levels of commitment to fire protection throughout the province.
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• While there were many references to fire industry standards, such as those developed by the
National Fire Protection Association (NFPA), there is limited understanding of the scope and
requirements of those standards.
• A primary concern for all stakeholders is that changes to fire service delivery will have financial
implications and may result in a decline in volunteering, upon which the municipalities rely.
• All participants in the consultations expressed respect and appreciation for those who volunteer
their time and skills to provide their communities with fire services.
• The tables that follow report what the consultants heard from participants during the facilitated
sessions. Information is recounted from the perspective of fire service partakers and, separately,
municipal attendees. The tables are lengthy; therefore, it is important to read the headings to keep in
mind whether the information being reported is from the viewpoint of fire services or municipalities.
• Pomax is aware that some of the information we heard, and stated in the tables, may not be correct
or may be misinterpreted by participants. We have not corrected those statements since our role is
to report on the perspective of those attending, not to reinterpret it.
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Funding
# Fire Services Perspective What we heard about the impact on fire services What we heard about the impact on public safety
1. Fundraising Volunteer support for fundraising is declining due
to other commitments, increasing time required
for other department duties, such as training,
equipment maintenance, and a reluctance to
participate in fundraising activities.
Fire services are the only community service
required to fundraise for equipment and
operational needs.
Recruitment and retention of volunteers may suffer
if fundraising is required and impact the number of
volunteers available to respond to emergencies.
2. Reimbursement for
delivering services deemed
provincial responsibilities
(i.e., medical first
responder, vehicle
extrication, hazardous
materials, hydro responses
and standby, traffic
control)
Fire departments respond to these incidents but
must fund training and equipment from within,
with no reimbursement from the province.
Volunteers are required to take on these extra
responsibilities and related training.
Local taxpayers are subsidizing provincial services
with funds that may be required for community fire
protection needs and circumstances.
3. Provincial funding—a
matching capital fund is
available to fire services at
two-year intervals, but it
requires initial funding of
equipment by the fire
department, which is then
reimbursed by the
province.
Fire departments in less affluent communities
cannot afford the initial expense to purchase or
replace equipment and apparatus.
Equipment may be kept in service long past its life
expectancy.
Apparatus may not be reliable to respond to
emergencies. Possible delays in response or failure
to operate at an emergency scene
Fire fighters may use equipment (e.g., breathing
apparatus) that should no longer be in service. A
health and safety issue
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Funding
# Fire Services Perspective What we heard about the impact on fire services What we heard about the impact on public safety
4. Area Rated Taxation Model
(Taxes for some services
[recreation, transportation,
fire, etc.] may be
calculated differently for
the area that receives a
specific or greatest benefit,
rather than generally
sharing the cost across the
whole municipality.)
Some communities are well funded, while many
do not have the tax base to provide resources
adequate to meet the needs and circumstances of
the community.
Some fire departments have to fundraise to
provide basic operational needs, such as fuel for
the vehicles.
Communities with strong assessment base and
high community involvement support their fire
services.
Funding is determined by geographical
boundaries (each ratepayer association coverage
area), not by risk in a given community.
Fire departments may hold onto their boundaries
regardless of impact on response times, because
they want the funding from that particular area.
There is a risk that some communities are not able
to provide a fire protection system appropriate to
their needs and circumstances, even within the
same municipal jurisdiction. Provision of the ‘best
available’ response times is superseded by local
politics and funding interests.
5. Accountability for funding There is no mandated accountability mechanism
regarding fire service funding.
Some fire departments are subject to strict and
expensive auditing requirements, while others are
not required to provide any.
Uncertainty regarding how funds are spent and the
impact on adequacy of community fire protection
Funding
# Municipal Perspective What we heard about the impact on municipal
governments What we heard about the impact on public safety
1. Funding for fire services is done
in silos per individual fire
departments in a given
Elected representatives and municipal
administrators have little control or authority
over funds provided for fire protection.
Fire safety concerns brought to elected municipal
officials are not addressed.
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Funding
# Municipal Perspective What we heard about the impact on municipal
governments What we heard about the impact on public safety
municipal unit. Municipalities
are required to collect funds as
determined by the local
ratepayers’ association with no
means to rationalize fire service
funding within the municipal
budgeting process.
Municipal governments are not able to effect
potential efficiencies over the broader municipal
unit, i.e., fire department insurance coverage,
rationalization of equipment and apparatus,
provision of specialized services.
The community may not receive the best possible
fire protection with available funding.
Best approach to fire safety in a community is not
provided—i.e., fire prevention/public education
as well as emergency response.
2. Inequity of funding—funding of
a fire department is often
determined by the economic
circumstances of individual rate
payer areas within a municipal
unit, including such issues as
property assessment values,
financial demographics,
perceived fire protection needs,
and political influence of fire
commissioners.
Fire departments that are well funded under the
current system protect the status quo.
Fire departments that provide fire service in
economically stressed areas are not funded to
the level required to meet the needs and
circumstances of that area.
Many municipalities are experiencing
infrastructure deficits but are prevented from
rationalizing the cost of fire services and
equipment, because fire departments continue to
operate independently and in silos.
Impact on purchasing of updated/reliable
apparatus and equipment required for
community and firefighter health and safety
3. Volunteer cost savings Municipalities recognize the low cost of a
volunteer fire service but are intimidated by the
fear of resignations if they attempt to exert
control over service levels or standards of service.
Introduction of appropriate service levels and
delivery standards are inhibited.
4. Reimbursement for delivering
services deemed provincial
responsibilities, (i.e., Medical
First Responder, vehicle
extrication, hazardous materials,
hydro responses and standby,
traffic control)
EHS is a private business* but municipalities are
subsidizing this enterprise through the provision
of emergency first responder services in their
communities.
*EHS is actually contracted to the province and
committed to province-wide service standards.
Funding for local fire service needs are limited in
order to fund provincial responsibilities.
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Service Delivery Standards
# Fire Service Perspective What we heard about the impact on fire services What we heard about the impact on public safety
1. No province-wide standardized
training program/curriculum
(most voluntarily follow NFPA
1000 series firefighter training)
Fire departments develop their own programs in
isolation.
Member departments of mutual aid systems may
have different levels of training.
Incident commanders cannot be confident in the
abilities of members of responding departments.
Community members cannot assess the
competency of their fire department members.
Health and safety concerns for firefighters and
the public
Registration of a fire department does not ensure
the fire department can competently provide the
services it is funded for or meet community
expectations.
2. Insurance coverage for
volunteers Workplace insurance is not required to be
provided in all municipalities.
Some communities provide insurance through
the Workers Compensation Board, while others
rely on private insurance, such as Volunteer
Firefighters Insurance Service (VFIS).
Some communities do not provide insurance of
any kind to volunteers
Reluctance to become a volunteer firefighter
depending on availability and type of insurance
coverage
Hiring and retention of volunteers impacts
response capabilities.
3. Development of standards Development of standards should have input
from the fire-service practitioners.
Ensures realistic and practical standards to be
employed in communities
Ensures communities are getting the services
they are funding
4. If service-delivery standards
are developed, they need to
be flexible to meet local
community needs and
circumstances.
Requires fire departments to clearly define and
identify their capabilities to the community
Enables a community to understand, define, and
fund the level of services appropriate to the
needs and circumstances of that community
5. Without standards, fire
departments and members are Without approved service delivery standards, fire
liabilities are increased.
Potential impact on hiring and retention of
volunteers
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Service Delivery Standards
# Fire Service Perspective What we heard about the impact on fire services What we heard about the impact on public safety
subject to potential legal
liabilities. In the absence of local standards, fire
departments will be subject to scrutiny against
industry-wide standards.
6. Enforcement of standards—
there is no provincial body to
enforce standards if they are
developed.
Adoption of standards would be voluntary in
each fire department.
Community may not have the level of protection
they assume or expect.
Service Delivery Standards
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public
Safety
1. Knowledge and understanding
of standards—service delivery
and performance
Many municipal representatives do not have a
clear understanding of what service-delivery and
performance standards are regarding the fire
service and what the impact would be on their
municipalities and the fire services.
Lack of knowledge and misunderstanding of fire-
service standards results in a fear of
implementing standards as financial concern and
the potential to lose volunteers.
If the province unilaterally introduces standards
for the fire service, there may be significant
impacts to municipalities.
The fire services in Nova Scotia are dependent
on volunteers, and if onerous standards are
introduced, then volunteers may decide to leave
the fire service, and recruiting new volunteers
may become difficult.
Best practices/delivery standards that benefit
community fire safety are not implemented.
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Service Delivery Standards
# Municipal Perspective What we heard about the Impact on Municipal
Governments
What we heard about the Impact on Public
Safety
2. No provincial
guidance/direction standards
for fire service operations
There is a range of fire service delivery and
performance standards across the province,
depending on the understanding/interest of the
local fire service provider, the rate payer
association members, and the municipal unit.
Municipal councilors have no means to measure
what they are funding and what they are
receiving regarding the provision of fire services
from the independently operated fire
departments.
In the absence of provincially recognized
standards, the default position in legal actions
becomes general fire industry standards, such as
NFPA for training and deployment.
Coordination of response, incident command,
and equipment resources during mutual aid
activations are affected.
Organization Structure/Governance
# Fire Service Perspective What we heard about the impact on fire services What we heard about the impact on public safety
1. The Municipal Governance Act
states that a municipality may
provide fire services—there is no
requirement to do so.
The Municipal Government Act
states, “A municipality may
maintain and provide fire and
emergency services by providing
the service, assisting others to
Fire departments operate independently with
little or no provincial or local government
oversight.
Local municipal governments can divest
themselves of responsibility for fire protection
by registering a fire department to provide
service.
There is no system of responsibility or
accountability from the province through the
Community members may or may not receive or
understand the fire protection they expect vs.
actual service level being provided.
Over expectation of emergency response
capabilities may result in failure to take personal
responsibility for fire safety.
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Organization Structure/Governance
# Fire Service Perspective What we heard about the impact on fire services What we heard about the impact on public safety
provide the service, working with
others to provide the service or a
combination of means”, 1998, c.
18, s.293
municipal jurisdiction to the individual fire
departments.
2. There is no designated provincial
position/agency responsible for
fire service operational matters.
Local fire departments deal in isolation with:
• Volunteer recruitment and retention
• Assistance with mutual aid administrative
and operational matters
No advocacy for fire service operational matters
at the provincial level
No enforcement of provincial mandates, such as
municipal addressing
No direction for fire service standards or service
levels, so fire departments develop their own
standards in isolation
A common/consistent point of contact within
the provincial government would assist the
predominately volunteer fire service
representatives in efforts to bring fire service
matters to the province.
Long-term viability of the volunteer fire service in
jeopardy and no affordable alternative
Mutual aid systems may not adequately address
the fire protection requirements in a community.
Fire service matters that would enhance the
effectiveness and efficiency of local fire services
are not understood or acted upon by the
provincial government.
Citizens may receive less than expected fire
protection.
Without consistent or recognized standards,
community members do not know what
level/quality of service they are receiving.
3. Fire departments operate in silos
within municipal units. Each fire department is required to organize
itself as an incorporated non-profit organization
and develop/organize its own governance
model, policies, funding, equipment, and
staffing.
Fire departments purchase equipment and
provide services based on their immediate needs
and agendas.
The closest fire station(s) may not respond to
emergency calls, impacting response times and
number of responders.
Failure to rationalize resources over a broader
geographical area may result in inadequate
funding of other fire protection components,
such as fire prevention and public education.
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Organization Structure/Governance
# Fire Service Perspective What we heard about the impact on fire services What we heard about the impact on public safety
Duplication/overlapping of resources
(equipment, staffing, station, service provision)
within a municipal jurisdiction and/or
geographical area
Fire chiefs are elected by their associations. The
introduction of fire system standards by fire
service managers is impeded by the political
nature of their positions.
Fire departments and their boards are
responsible only to the local ratepayers’
association.
Fire protection is not delivered efficiently and
effectively in many communities in close
proximity to each other.
Fire protection in a given jurisdiction may not
meet the actual needs and circumstances of the
community.
Organizational Structure/Governance
# Municipal Perspective What we heard about the impact on municipal
governments What we heard about the impact on public safety
1. The Municipal Government Act
states that a municipality may
provide fire services—there is no
requirement to do so.
The Municipal Government Act
states, “A municipality may
maintain and provide fire and
emergency services by providing
the service, assisting others to
provide the service, working with
others to provide the service or a
combination of means”, 1998, c.
18, s.293
There is no direction from the province to assist
municipal governments in the delivery of fire
services in their communities, including the
organizational model, level of services, and
funding.
Municipalities rely on local fire departments to
register to provide services, resulting in a variety
of service types and levels of service within the
municipal structure.
Community members may not get the services
they expect or assume they have.
Communities may not get the level of service
adequate or appropriate to the needs and
circumstances of that area.
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Organizational Structure/Governance
# Municipal Perspective What we heard about the impact on municipal
governments What we heard about the impact on public safety
2. There is no designated provincial
position/agency responsible for
fire service operational matters.
Elected officials and municipal managers have no
direct access point to the provincial government
to deal with fire service operational matters.
Fire safety concerns and initiatives that would
benefit community fire safety are not acted upon
or implemented.
3. Fire commissioner role,
authority, and independence Fire commissioners have wide-ranging authority
and can operate independently of any municipal
oversight in the administration and operation of
the fire department, yet municipally elected
officials and senior managers are held
accountable by the taxpayer for fire service
administration and delivery.
Fire commissioners have the authority to provide
fire services beyond the municipality with which
they are registered, and this could result in one
municipality subsidizing fire services in another
municipality.
Lack of municipal oversight could result in
inadequate fire protection.
4. Transparency and
Accountability—municipalities
purchase fire services through
the registration of a fire service
provider, with little influence on
fire department administration,
operations, or quality of service.
Elected officials are held accountable by the
community for fire services but have no
authority over fire department administration,
operations, or quality of service.
While municipal governments have little control
over fire departments, they are subject to
potential legal liabilities regarding fire protection
matters.
Fire safety concerns brought to elected municipal
officials are not addressed.
5. Fire departments operate in silos. Municipalities are not able to implement service
levels, performance standards, or training
standards in a meaningful way.
Fire safety is not delivered at the optimal level.
Communities may not have access to specialized
services.
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Organizational Structure/Governance
# Municipal Perspective What we heard about the impact on municipal
governments What we heard about the impact on public safety
Municipalities are not able to avoid unnecessary
duplication of equipment in adjacent fire
departments.
Municipalities are not able to develop shared
specialized services in the individual fire
department within the municipal unit or
between adjacent municipalities.
Municipalities have no opportunities to share
best practices.
Initiatives to conduct community-wide risk
assessments or develop master fire plans on a
broad community basis are inhibited by localized
special interest groups/fire departments.
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Challenges, Options, Recommendations
The organization, and delivery of fire services throughout the province are markedly different from one
jurisdiction to another which has resulted in many long-standing issues. The Municipal Review of Fire
Services in Nova Scotia was initiated by UNSM and AMANS to gain an understanding, from the municipal
perspective, of the most significant issues, opportunities, and possible areas for collaboration.
Notwithstanding the nature of the issues, which include inequities between the have and have-not
jurisdictions, there does not appear to be evidence of impetus by any group or individual organization to
spend the time, effort, and resources to design and implement an improved way of providing fire services
across the province. We acknowledge that there have been several studies, including this one, in an effort
to find a resolution to the variance in fire services, but neither the province nor the majority of
municipalities have ‘taken the bull by the horns’. Existing legislation gives municipalities permission to
“maintain and provide fire and emergency services”, and we do not see a restriction as to the degree to
which that right can be exercised. Nevertheless, there are some very good reasons why municipalities
haven’t unilaterally assumed responsibility for fire services, just as there are reasons that the province has
not applied greater regulation and control.
The majority of those attending the consultation sessions confirmed the need for change. However, the
real stumbling block in the process is that municipal participants, and the province, recognize the financial
and political cost involved in assuming responsibility and control of fire services.
We gleaned important themes from our consultations:
1.Fire delivery standards or requirements
a.The majority of participants did not have a reasonable understanding of fire service delivery
or performance standards, and the drivers that would help inform the level of service
required.
2.Legislation
a.Many participants were not fully aware of responsibilities and rights, within legislation, to
form, register, or monitor fire services.
3.Funding challenges; identified by participants as an inadequate municipal tax base or support
from the province.
More specific issues, such as variances in standards, service delivery, equipment, and training, result
from these primary themes.
•The Municipal Government Act allows municipalities to form fire departments (“A municipality
may maintain and provide fire and emergency services by providing the service, assisting others
to provide the service, working with others to provide the service or a combination of means,”
1998, c. 18, s.293).
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• The Act requires municipalities to register a body corporate to register as a fire department (“294
(1) A body corporate may apply to a municipality for registration as a fire department; (2) A
municipality shall not refuse to register a body corporate that complies with this Act …”)
• And, the legislation provides a municipality with rights.
(2) A municipality shall not refuse to register a body corporate that complies with this act if
(a) municipality is satisfied that the body corporate is capable of providing the services it
offers to provide;
(b) body corporate carries liability insurance, as required by the municipality;
(c) body corporate does not provide the fire services for profit; and
(d) municipality does not provide the same services for the same area.
• And, section 296 says, with respect to policies
Policies
296 (1) The council may make policies respecting full-time, volunteer and composite fire
departments and emergency service providers in the municipality.
296 (2) Policies for fire departments and emergency service providers may include
(a) requirements and procedures for registration;
(b) personnel policies with respect to those members who are employees of the
municipality;
(c) the manner of accounting to the council for the use of funds provided by the
municipality;
(d) an annual meeting to report to the public respecting fire and emergency services;
(e) such other matters as are necessary and expedient for the provision of emergency
services in the municipality.
(3) The council may require proof of compliance with its policies before advancing
any funds. 1998, c. 18, s. 296.
• The legislation allows municipalities to
operate or register fire departments and emergency services, and
set policies and procedures, including control of funds.
But there are two items lacking:
A structure to advise municipalities on fire service operational, training, and capital needs;
and
Funds.
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4.1 Discussion
We suggest the following is true: If municipalities had ample funds for the provision of fire service, none
of the themes heard during consultation sessions, or the more specific issues, would be of concern. This is
based on the premise that, with sufficient funds, municipalities would be able to
• undertake studies (risk analyses, master fire plans) to determine the fire and emergency
protection needs in their communities; and,
• implement a fire and emergency services protection system commensurate with the needs
identified. This would include public education, prevention, suppression, rescue, training, and
other identified requirements.
Securing adequate funds could be accomplished a number of ways, depending on the circumstances of a
municipality:
Local taxes
Provincial grants (from provincial taxes)
Provincial transfer payments (from provincial taxes)
Taxes specific to communities (fire districts, rate payers’ associations)
• Theoretically, if there were a source of funds that could be used for fire services, which was
equally available to all municipalities, then other concerns, such as differing levels of service,
training, variances in standards, and so on, would not be issues because municipalities would be
providing services at levels that locally elected officials decide are appropriate for the
municipality.
• The fallacy in the hypothesis posed above is that there isn’t a source of adequate funds, except
for a few municipalities that can provide fire service based on local taxes.
Situation Not Unique
• The issues brought forward by consultation participants are not unique to Nova Scotia. In one
form or another, the same situations occur across Canada, although there may be some
differences.
• In more populated areas of Canada, fire services are supported by municipal taxes. Less populated
areas experience similar concerns to Nova Scotia. There are differences, though. For example,
In British Columbia, the Office of the Fire Commissioner issues the British Columbia Fire
Service Minimum Training Standards, Structure Firefighters Competency and Training
Playbook, but municipalities are responsible for ensuring that fire departments meet the
standards.
In Ontario, the Office of the Fire Marshal employs advisors who visit municipalities to offer
suggestions for training, public education, fire prevention, equipment, and other aspects of
fire and emergency services. Advisors can make recommendations to municipalities if fire
protection is inadequate and, if necessary, the province, under the Fire Prevention and
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Protection Act, can take action to the point of making a regulation. The Ontario Fire
Prevention and Protection Act; Subsection 81 states:
If a municipality fails to adhere to the recommendations made by the Fire Marshal under
subsection (7) or to take any other measures that in the opinion of the Fire Marshal will
remedy or reduce the threat to public safety, the Minister may recommend to the
Lieutenant Governor in Council that a regulation be made under subsection (9).
• In the Regional District of Central Okanagan, fire service is provided to ratepayer groups, similar
to Nova Scotia, while neighbouring addresses or communities may decide not to be part of the
ratepayer group receiving protection (there are rules within which those decisions are made). And
even though the fire service raises funds through volunteer efforts, fire services are operated by
the Regional District, and taxes support the fire service activities.
• Even in the most populated provinces of Canada, there are rural areas where fire service does not
meet the standards and services of more populated areas, and training and equipment are not at
the same levels.
Therefore, Nova Scotia does not have unique experiences. The difference, when compared to other
parts of Canada, is that many other provinces have stronger legislation and standards.
Some options for change—or not changing—are put forward in the discussion in Section 4.2.
1 Ontario Fire Prevention and Protection Act; Part II, Responsibility for Fire Protection Services, Municipal
Responsibilities (2) Subsection 8
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4.2 Options
# Options for Consideration Discussion
1. Option: Maintain the status quo. The outcome of maintaining the status quo may include
• Fire services continuing to operate and deliver emergency response utilizing diverse and
often incompatible standards for apparatus and equipment, training, performance
competencies, and incident command systems that may or may not be appropriate or
adequate to the needs and circumstances of the community, or as required during major
emergencies requiring multi-agency deployments.
• Funding arrangements will remain as they are now.
• Issues regarding inadequate and/or unnecessary funding are unlikely to be addressed.
• Funding levels are likely to continue to be determined by local influencers and
ability/willingness of the community to pay rather than by a needs analysis.
2. Option: Municipalities could assume
greater responsibility for fire services
within the authority described in
Section 296 of the Municipal
Government Act.
• The consultants interpret Section 296 (2)(e) (“such other matters as are necessary and
expedient for the provision of emergency services in the municipality”) as broad enough
for municipalities to stipulate training and service-delivery levels.
• The Municipal Government Act allows municipalities to set policies and procedures under
which fire services operate.
Several municipalities stated their concern that some volunteer fire services wield
sufficient political influence to prevent action within Section 296 (2), and that the only
way to counteract that influence is for the province to take responsibility for fire
services or to change legislation.
Municipalities stated their concern that implementing stronger policies, procedures,
or other requisites may increase the cost of fire services, or volunteers may decide to
leave the department.
The consultants acknowledge these are legitimate concerns but ones that must be
dealt with as part of managing change within the Nova Scotia fire protection industry
if the responsibility remains at the municipal level.
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3. Option: Province assumes
responsibility, authority, and funding
of fire services.
Assumption, by the province, for responsibility, authority, and funding of fire services may
result in
• Opportunities for rationalization of apparatus, equipment, service delivery, and resources
over a broader area.
• Centralized authority, responsibility, and accountability for fire services.
• A better equipped and resourced entity (the province) to equitably fund fire services,
establish and monitor standards, and mobilize to rectify variances when they occur.
• Expected improved consistency in training, equipment, operating procedures, and
incident command systems in the event of multi-agency deployments for major
emergencies.
• Fire service costs are spread over a broader tax base, reducing “have” and “have-not”
community levels of fire protection.
• Opportunities for purchasing and administrative efficiencies and potential savings.
• Controversy if a municipality believes there should be equipment, staffing, or training
beyond what the province allocates.
Considerations associated with this option
Capital and annual operating costs will increase at the provincial level.
The province is likely to have to increase staff to provide support and oversight to fire
services.
New legislation and regulations may be required to allow the province to monitor and
enforce regulations and standards.
The province, as the entity responsible for funding and monitoring fire services, may
be subject to criticism that it is not doing enough to protect municipalities, and will
have to defend the level of service it determines is adequate for municipalities. This
includes standards for equipment and apparatus, training, operational guidelines,
service delivery standards including response times and staffing levels, governance,
and funding models.
A funding partnership between the province and municipalities may be required.
Municipalities may have to forfeit all aspects of fire service to the province.
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# Options for Consideration Discussion
4. Option: Establish, or enhance, a
provincial body or position with
responsibility for oversight and
guidance regarding fire services, combined with provincial legislation
and regulation requiring
municipalities to provide a basic level
of fire and emergency protection,
create
• In most provinces, the responsibilities for fire prevention, public education, investigation,
reporting, and (in some cases) emergency response monitoring are centralized in one
agency.
• A channel would be established through which fire service matters could be brought to
the attention of the provincial government with a reasonable expectation of resolution.
• Without supporting legislation or regulation, municipalities and registered fire services
would not have to accept the advice and guidance of the provincial body. If legislation or
regulations were implemented, this would be similar to Option 3.
• Municipalities would receive guidance on the level of fire service appropriate to their
needs.
• Costs for fire and emergency response may increase at the municipal level.
• ‘Have-not’ communities may require provincial financial assistance to provide a basic
service level
• Costs related to advice to, and monitoring of, fire services would be likely to increase.
• Oversight and guidance responsibility should extend to providing guidance on resource
requirements and limitations (over-resourcing).
5. Option: Create a professional
regulatory body • A regulatory body would establish fire-service standards for equipment and apparatus,
operating procedures, incident command, training, mutual aid agreements, operating
procedures, service delivery standards, and specialized services.
• UNSM, AMANS, and any other partner could combine their resources to hire a transition
project coordinator and provide a budget to support the various activities.
• A fire services regulatory body could be funded by membership dues, or a combination of
dues and provincial assistance.
• Legislation would be required, granting authority to the regulatory body.
• Municipalities may require provincial funding assistance to meet standards.
• This model does not alleviate the concern expressed by a few municipalities that some
fire services are over-resourced unless the regulatory body is also empowered to provide
guidance on resource requirement and limitation.
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# Options for Consideration Discussion
6. Option: Funding partnerships
between the province and
municipalities that enable all
municipalities to purchase equipment required for safe and
effective emergency response,
commensurate with the needs and
circumstances of the community.
• Assists municipalities that are not able to fund needed equipment and apparatus through
the current provincial assistance program which requires municipalities to provide the up-
front costs and then apply for partial reimbursement by the province.
• May raise controversy if the municipal and provincial definition of “equipment required
for safe and effective emergency response” differs.
• This model does not alleviate the concern expressed by a few municipalities that some
fire services are over-resourced.
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4.3 Best Practices
Best practices, which apply equally to rural and urban areas, include activities to determine the risk of
incident occurrence, prevent incidents from occurring, and finally, response requirements.
Municipalities, which, because of limited tax base or other restraints, are not able to unilaterally
implement planning strategies or best practices, could achieve economies of scale by partnering with one
or more communities to accomplish activities such as risk analyses, operational and organizational
reviews, and master plans.
4.3.1 Community Fire Risk Assessments
Municipalities should conduct a risk assessment to determine fire and emergency service protection
requirements. A risk assessment includes a detailed analysis of the possibility of a fire occurrence and the
potential consequences. This includes
• a historical review of fire occurrences over a period of time sufficient to develop an understanding
of the number and type of responses that occur in the community;
• a review of major facilities within a community (health care, commercial/industrial, and
institutional); and
• an analysis of the potential impact on the community, should a fire occur in one of these
occupancies. These consequences may be life and safety, economic, or environmental.
Following an analysis, a community can determine the methods best suited to manage these risks based
on its ability to provide resources including fire prevention, public education, and emergency response.
4.3.2 Fire Master Planning
Fire master planning is a tool for communities to determine current and future fire protection needs and
includes the community risk analysis noted in section 4.3.1. The plan should address potential changes in
the community over a future five or ten-year period, including
• Management and mitigation of fire risks: fire prevention, public education, and emergency
response
• Analysis of emergency response needs: assessment of fire frequency, type, and geographic
location; response times and station locations; types of equipment needed (water pumping
capacity, specialized equipment); and number of responding personnel
• Response capacity: assessment of local capabilities and access to additional resources through
automatic aid and mutual aid systems
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4.3.3 Fire Service Coordinators
Some municipalities in Nova Scotia have banded together to introduce the position of fire coordinator to
assist communities in the administration of fire service delivery. Consultation participants indicated that
overall costs were reduced by a combination of the rationalization of apparatus and equipment, and the
delivery of specialized services. Although the fire service coordinator position has no direct authority or
responsibility regarding command and control during emergency responses, or over local fire department
administrative, funding, or operational matters, all indications from participants were that the positions
were of significant assistance in facilitating inter-agency coordination and cooperation.
4.4 Discussion—Key Issues
As a result of assessing the province-wide survey, holding several conferences with the steering
committee, eight consultation sessions with municipal and fire representatives, and receiving three
telephone calls from town and city managers, the following primary issues were identified. Everything
else noted in this report falls out of these three key issues. Not all of them are applicable to all
municipalities.
1. Cost: Most municipalities in the province understand the cost of providing fire and emergency
services and do not see an opportunity to raise those funds from local taxpayers and donations.
The province understands that setting province-wide standards means that there will be an
operational, administrative, and financial challenge to bring many fire services up to those
standards, and the province is likely to face criticism for not doing enough.
2. Political circumstance: Some municipalities report that several volunteer fire services, which are
well financed as a result of fundraising and being in more affluent areas of the province, have
political clout and do not want to see a change that might affect the way they conduct business
or provide services. Therefore, some municipalities in this situation are reluctant to ‘plant a
political minefield’ by taking on responsibility for fire services.
3. Responsibility: Municipalities understand that if they take on responsibility for direct operation
of fire services that it is the start of a new set of accountabilities for adequate protection levels,
decisions balancing cost against service, and possible controversy. The status quo means that
there will be varying levels of service provision across the province, but it may be the lesser of two
very difficult choices.
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Recommendations
Recommendations Discussion
1 UNSM and AMANS establish a committee to
lobby, and work with, the province to review
fire and emergency service legislation, and
establish regulation, guidelines, and an
oversight body similar to the Offices of the Fire
Marshal in British Columbia, Ontario, and other
provinces.
a. Existing legislation allows municipalities to provide fire services in the form that
best suits each community, and allows them to set operational and administrative
parameters. However, the application of this authority has practical, financial, and
political implications.
b. Several studies have been completed in the province in previous years. Further
consultation or studies, (other than for the purposes indicated in this
recommendation), will delay necessary decisiveness and action.
c. This recommendation will not eliminate instances of political influence from some
fire services, as related during consultation sessions, but it will mitigate it.
d. Guidelines and oversight resulting from this recommendation should be adaptable
to the specific needs of groups of municipalities based on size and economic
circumstances.
e. The interaction between UNSM, AMANS, and the province will provide an
opportunity to clarify responsibilities and cost recovery pertaining to support
services provided by fire departments such as emergency medical, hazardous
material, standby, hydro, and other duties.
2 UNSM and AMANS lobby the province to fund
and support risk analyses and fire master plans
for municipalities or groups of municipalities.
This action will identify and quantify the fire
and emergency services protection needs of
each community, thereby enabling decisions
based on objective information.
Notwithstanding recommendations 1 and 2,
municipalities should lobby their local Member
In the interim, while working towards revised legislation and regulation with the
province, and to avoid inaction while legislation is being enacted, neighbouring
municipalities should explore pooling resources to complete risk analyses and, if
possible, fire master plans. Pooling resources may create economies of scale, thereby
lessening the cost impact on any one community.
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Recommendations Discussion
of Legislative Assembly to assist with finding
funds to conduct fire risk analyses, thereby
quantifying fire services and emergency
response requirements.
3 UNSM and AMANS provide clarification, via
written information bulletins, about existing
fire-applicable legislation and municipalities’
rights and responsibilities.
We discovered a variety of opinions and interpretations with respect to legislation, and
the source of legislation, during our consultations.
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Appendix A: Online Survey
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Appendix B: Representation at Consultation Meetings
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The following table shows the position, and location of those who responded positively to attending a
facilitated meeting. Position and municipality information is presented as provided by respondents.
Position Municipality
1st vice chair Nova Scotia Firefighters school
CAO Antigonish County
County of Kings
District of Chester
District of Saint Mary's
Municipality of the County of Pictou
Municipality of the District of Barrington
Region of Queens
Town of Antigonish
Town of Mahone Bay
Town of Middleton
Town of Port Hawkesbury
Town of Westville
Town of Windsor
Trenton
West Hants
CBRM alternate CBRM
Chair Greenwood
Chair Fire and Emergency Services Committee Lunenburg
Chair of Cape Breton Regional Fire Chiefs
Association Cape Breton
Chief East Hants
Glace Bay
Town of Oxford
Westville
Chief / Deputy Chief Town of Trenton
Chief Admin Officer Victoria County
Chief Director Fire Services CBRM
Clerk Village of Cornwallis Square
Clerk Treasurer Village of Bible Hill
Village of Chester
Commissioner Village of Bible Hill
Commissioner / protective services rep Village of Bible Hill
Councillor District Chester
Colchester County
Cumberland
District of Lunenburg
MacAloney
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Position Municipality
Mahone Bay
MODG
Municipality of the District of Lunenburg
Pictou
Region of Queens
Town of Bridgewater
West Hants
Councillor/ liaison Firefighters Assoc. County of Pictou
Deputy CAO District of Lunenburg
Deputy Chief Operations Halifax
Deputy Fire Chief Cape Breton Regional
Town of Trenton
Deputy Mayor Town of Antigonish
Deputy Warden West Hants
Director Lunenburg
Director of Finance Antigonish County
Town of Middleton
Director of Fire, Emergency, and IT Services Guysborough
Executive Director Nova Scotia Firefighters school
Fire Chief Argyle
Bible Hill
Bridgewater
Pugwash
St. Mary's
Truro
Yarmouth
Fire Chief / Safety Compliance Town of Amherst
Fire Chief/FSANS rep Queen's
Fire Commission/ Fire Chief Kings County
Fire Service Coordinator Municipality of Barrington
Fire Service Coordinator/Administrator and FSAN
Director For Lunenburg Fire and emergency service Municipality of the District of Luneburg
Fire Services Coordinator Cumberland
Richmond County
FSANS Alternate Director Argyle
FSANS Director Hants
Richmond
Yarmouth
FSANS Director for Pictou County Pictou County
FSANS Director/Fire Chief Kings
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Position Municipality
Manager Protective Services County of Annapolis
Mayor Town of Antigonish
Town of Berwick
Mayor Town of Digby
President CFFA Colchester
President Kings County Fire's Association Kings County
Protection Services Municipality of the County of Colchester
Supervisor of Building and Enforcement Services County of Kings
Vice President of FSANS Pictou
Warden Barrington
District of Shelburne
Kings County
Municipality of the District of Shelburne
Victoria County
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The following tables provide actual attendance according to the sign in records from each meeting.
Bridgewater - September 12, 2016 - 2:00 p.m.
Name Organization
1 Frank Fawson District of Lunenburg
2 Richard MacLellan RQM
3 Rasmano Fiske RQM
4 Don Zwicker District of Lunenburg
5 Wayne Thorburne Town of Bridgewater
6 Bill Falkenham FSANS
7 Rob Frost District of Barrington
8 David Kendrick District of Barrington
9 Tammy Wilson District of Chester
10 Karl Nauss Mahone Bay
11 Bruce Blackwood Municipality of Chester
12 Andy Veinotte Municipality of Chester
13 Danny Muise Municipality of Argyle
14 Roger Taylor District of Shelburne
15 Jim Wentzell Town of Mahone Bay
16 Michael Graves Town of Bridgewater
17 Bill McInnis Town of Bridgewater
18 Dave Devenne Town of Mahone Bay
19 Timothy Habinski Annapolis County
20 Cheryl Mason County of Annapolis
21 Martha Roberts County of Annapolis
22 Michael Ernst Municipality Dist Lunenburg
23 Don Townsend Municipality Dist. Shelburne
24 Ray Cambria Village of Chester
25 Brenda Mulrooney Guest
26 John Ferguson Mun. of County of Annapolis
27 Tom Mulrooney Chester Commissioner
28 Iris Tolliver Village of Chester
29 Chris Kennedy Municipality Dist. Lunenburg
30 Alex Dummaresq Municipality Dist. Lunenburg
31 Peter Haugnn Town of Lunenburg
32 Bea Renton Town of Lunenburg
33 Illegible signature
www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Bridgewater - September 12, 201 - 6:00 p.m.
Name Organization
1 Joseph Boudreau Wedgeport Fire
2 Art Rose Port Maitland Fire Dept.
3 Lynn Seeley Mutual aid Assn Yarmouth Co.
4 Wayne Thorburne Town of Bridgewater
5 Moyal Conrad Queens Co.
6 John Cunningham NS Fire Fighters School
7 Johnathan Harmon Vice President LRFES
8 Paul Gould Quinan & Dist. Vol. Fire
9 Michael Nauss Bridgewater Fire Dept
10 John Verrall Yarmouth Fire Department
11 Brain Gray Halifax Regional Fire & Emergency
12 Bill Falkenham FSANS
13 Arthur Backman Chester Basin Fire Commission
Lunenburg East Fire & Emergency
14 Wendy Rafuse Chester Basin VFD
15 Lyle Russell Lunenburg East Fire & Emergency
16 John Robart Oakhill & District Fire Dept
17 Corey Zink Oakhill District Fire Dept
Kentville - 13 September 2016- 2:00 p.m.
Name Organization
1 Don Clarke Town of Berwick
2 Don Regan Town of Berwick
3 Tom MacEwan County of Kings
4 Terry Brown County of Kings
5 Ken Pineo Village of New Minas
6 James Redmond Village of New Minas
7 Brenda Stimpson Village of New Minas
8 Lous Coutinto Town of Windsor
9 Scott Burgess Town of Windsor/Windsor Fire Dept
10 Bill Farrell Village of Cornwallis Square
11 Allison Duggan Mun. County of Antigonish
12 Glen Horne Mun. County of Antigonish
13 Cathie Osborne Mun. Dist. West Hants
14 Rachel Turner Town of Middleton
15 Doug Armstrong Town of Windsor
16 Bruce Snell Mun. of Digby
17 Kevin Thomson Kings Co. Fire Fighter Association
18 Jennifer Daniels Mun. West Hants
19 Harold Pothier Office of the Fire Marshal
www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Kentville - 13 September 2016- 6:00 p.m.
Name Organization
1 Mark Phillips Town of Kentville
2 Jeff Skaling Chair – Kings County Fire Service
Chiefs Official Steering committee
3 Philip Porter FSANS Director for Kings County
4 Patrick Armstrong Annapolis County Fire Services, President
5 Michael Lockett Annapolis County Fire Services FSANS Director
NS Firefighters School 1st VC
6 Harold PPothier Office of the Fire Marshal
Truro - 14 September 2016 - 2:00 p.m.
Name Organization Position
1 Bill Mills Truro Mayor
2 Scott Fraser Colchester Dir. Corporate Services
3 Geoff Stewart Colchester Council
4 Bob Taylor Colchester County Mayor
5 Carl Chisholm Town of Antigonish Mayor
6 David Parker County of Pictou Firefighters Liaison
7 Shannon Mury Richmond County Fire Service Coordinator
8 David Westlake Colchester County Protection Services
9 Marvin MacDonald District of Saint Mary’s CAO
10 Kevin Kennedy Village of Bible Hill
11 Lois MacCormick Village of Bible Hill Commissioner
12 Bob Christianson VBH Staff
13 Bonnie Coulter Town of New Glasgow CFO
14 Alta Munroe Town of Pictou Council
15 Don Fletcher Cumberland Council
16 Mike Carter Cumberland FSC
17 Doug Williams Cumberland Council
18 Kelly Rice Town of Westville CAO
19 Christine Blair Colchester County Councillor
www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Truro - 14 September 2016 - 6:00 p.m.
Name Organization Position
1 Dwane Mellish Bible Hill Fire Chief
2 Brian Farrow Amherst D/C
3 Greg Jones Amherst Fire Chief
4 Andy Yarrow Pugwash Fire Chief
5 Tory Rushton Oxford Fire Chief
6 Raymond Anderson Trenton Fire
7 Wayne Allain Trenton Fire Chief
8 Ken Dunn Westville Fire Chief
9 Dave Sponagle Thorburn FD FSANS Director,
Pictou Co.
10 Tom Steele Westville Fire Dept Deputy Chief
11 Jim Roper FSANS Vice President
12 David Westlake Protection Services
Colchester
13 George Muise CBRM Fire Service
14 Greg Smith Antigonish Director
15 Mike Carter Cumberland FSC
16 Crawford Macpherson Colchester Director Community
Development
17 Nigel Leggett Valley Kemptown Fire Brigade
18 Meryln Smith Colchester Fire Fighters Assoc President
19 Bonnie Coulter Town of New Glasgow CFO
20 Blois Currie Town of Truro Chief
21 Terry MacAloney Enfield Fire Dept
22 Malcolm Noble East Hants Fire Services
Baddeck - 15 September 2016 - 6:00 p.m.
Name Organization Position
1 John Chant Glace Bay Vol Fire Dept Chief
2 Jim Prince CBRM Director Vol Chief
3 Raymond Ferguson Richmond County Director FSANS
4 Addison Underwood
5 P. Munishand
6 Shawn Andrews FSANS Guysborough Director
7 Illegible signature
www.pomaxinc.com 1-888-707-6629 or 519-657-0614
Union of Nova Scotia Municipalities
Association of Municipal Administrators, Nova Scotia
Municipal Review of Fire Services in Nova Scotia
Baddeck - 15 September 2016 -2:00 p.m.
Name Organization Position
1 Bernie MacKinnon Cape Breton Region Chief
2 Merrill MacInnis North Shore & Dist. Vol Fire
Victoria County
3 Fraser Patterson Victoria County Deputy Warden
4 Duart MacAulay Mun. of the County of Inverness
5 Maris Freimanis Town of Port Hawkesbury CAO
6 Joe O’Connor Inverness CAO
7 Shawn Andrews Municipality of Guysborough
INFORMATION
Prepared By:Tammy Wilson Date August 15, 2017
Reviewed By:Date
Authorized By:Date
CURRENT SITUATION
As per Section 4.0 of Policy P-04 (Procurement Policy) all Low Value Procurement awards in excess of
$10,000 are to be provided to Council in an Information Report.
This report provides Council with information on the Low Value Procurement Awards from April 1, 2017
until August 15, 2017.
RECOMMENDATION
N/A
BACKGROUND
The following is a summary of the Low Value Procurement Awarded
Work Date Amount Awarded to
Electrical Utility
Upgrade (KM)
June 2017 $14,415.94 Alternative
Procurement; NSPI
Heavy Equipment
Services (1 year)
August 15, 2017 $25,360.00 G. Zinck (lowest bid)
ESRI Site License April 2017 $18,975.00 ESRI (Alternative
Procurement
REPORT TO:Municipal Council
SUBMITTED BY:Administration
DATE:August 15, 2017
SUBJECT:Low Value Procurement Awards
ORIGIN:Procurement Policy –Section 4
INFORMATION REPORT
Prepared By:Erin Lowe Date August 4, 2017
Reviewed By:Tara Maguire Date August 9, 2017
Authorized By:Tammy Wilson, CAO Date August 9, 2017
CURRENT SITUATION
For the 2017-18 fiscal year, Council created an Economic Development Sponsorship fund to sponsor
events or initiatives within the municipality that are designed to help achieve Council priorities and
generate local economic development benefit in one or more of the following areas:
Supporting business growth and employment.
Increasing visitor attraction.
Promoting the municipality to residents and visitors.
RECOMMENDATION
For Information
BACKGROUND
Sponsorship is a form of marketing in which organizations pay to be associated with certain events.
Additionally, sponsorship provides community relations benefits by increasing visibility and recognition as
a good community partner.
Organizations are recognized as good community citizens when they support initiatives that assist groups
that benefit or improve the quality of life and/or programing in their community.
Sponsor opportunities are evaluated by the following criteria:
Relevance to the community.
The Municipal logo must be displayed on some marketing of the event.
The audience should be significant in size or targeted.
REPORT TO:Municipal Council
SUBMITTED BY:Erin Lowe,Economic Development Officer
DATE:August 4, 2017
SUBJECT:ED Sponsorship
ORIGIN:Sponsorship Policy, P-87
2 Information Report
DISCUSSION
The following sponsorships were issued by the Director of Community Development and Economic
Development Officer as of August 4, 2017:
Budget 2017-18 $5,000.00
Balance May 31,2017 $5,000.00
Recent Sponsorships
NOW Lunenburg County –Cross Canada Tour Welcome Home Event $500.00
Previously Approved
Hubbards Barn Association –Food Truck Rally $500.00
Shoreham Village Foundation –Golf Tournament $650.00
Lunenburg County Christmas Tree Producers Association1 $1500.00
Balance $1,850.00
1 Approved by Motion of Council June 22/17
IMPLICATIONS
Policy
Sponsorship P-87
Financial/Budgetary
This request has been accommodated within the approved budget of $5000 for municipal sponsorships.
Environmental
None
Strategic Plan
Goal 6-Promote conditions conducive to fostering economic prosperity.
Work Program Implications
N/A
OPTIONS
For Information
ATTACHMENTS
None
COMMUNICATIONS (INTERNAL/EXTERNAL)
Goal
Promote conditions conducive to fostering economic prosperity.
Request for Proposal
Website Redesign & Support Services
Date of Issue: August 1, 2017
Proposal Submission Deadline: September 10, 2017
The Municipality of Chester
P.O. Box 369, 151 King Street
Chester, NS B0J 1J0
Attention: Pam Myra, Municipal Clerk
Email: pmyra@chester.ca
Telephone: (902) 275-3554
Website: www.chester.ca
The Municipality of Chester
RFP for Website Redesign & Support Services
SECTION “A” – Project Overview
1. Municipal Overview
Proponents are encouraged to visit the current website www.chester.ca to
gain familiarity with the Municipality to prepare a response to the RFP.
2. Project Background, Goals and Objectives
The Municipality’s current website was launched in 2013 and changes have
occurred since. Current website content will be migrated to the new
website in consultation with Municipal staff. The functionality of the new
site must incorporate current web standards and technologies including
those for accessibility.
The Municipality is seeking the services of a qualified web development
firm for the design and creation of a new dynamic and modern municipal
website that not only delivers information, but invites engagement and
showcases the Municipality of Chester's assets and outstanding services.
The proposal is expected to show a clear understanding of the final product
and indicate a fixed price for the project completion. The Municipality
already has a preferred vendor for website hosting.
The objectives of the redesign would provide a website that is:
a. A comprehensive resource of information for residents, visitors and
businesses
b. A provider of online services (or however you say that)
c. A platform for public engagement
d. Easily maintained by Municipal Staff
e. Simple to navigate and search
f. Compliant with accessibility requirements, specifically WCAG 2.0 and
Level A (minimum)
g. Owned and copyrighted by the Municipality
3. Project Responsibility and Key Contact
a. Vendor will be responsible for the following:
i. Design, planning, project management, implementation of
new website.
ii. Provision of staff training.
iii. Ongoing support service as requested over three-year contract
period, including troubleshooting by phone or email.
iv. Work with key staff to populate/migrate content to the new
website.
b. Key Municipal contact will be: Jennifer Webber, Communications
Officer
SECTION “B” – Project Requirements
1. Mandatory Requirements
The proposal shall, include and cover the following items. These items
should be considered mandatory requirements. Submission must include a
detailed description of how you will achieve each of these mandatory
requirements:
System Requirements
• Meet or exceed compliance with the Accessibility Standards outlined above
• Ability for staff to edit, add or delete content 24 hours a day with a user-
friendly content management system and ability for Municipal staff to add
new sections and/or pages and manage photos/images and documents
• Easy for end-users to navigate around the site through such features as a
user-friendly search tool, a user-intuitive site structure and a detailed site
map
• Must support easy browsing via mobile and tablet devices (responsive
design)
Vendor Requirements
• Previous experience of at least three projects in designing municipal
government websites and/or projects of a similar size and scope. (Two
references and links to similar works are to be provided)
• Train key staff in the use of the content management system, and provide a
manual for reference.
• A detailed work plan, including a step-by-step description of the process
(with timelines and responsibilities assigned) the proponent would
undertake in partnership with the Municipality of Chester to successfully
complete the website redesign. The work plan should also clearly define
the members of the proponent's project team and their experience.
• A firm quotation cost. The proposal shall provide an all-inclusive total
project cost. Cost proposals are to be all-inclusive and are to include the
cost of all meetings and related items to complete this project.
• A separate cost proposal for ongoing support fees with hourly, monthly and
annual rate options.
Target Audiences
The Vendor shall explain and outline how the project and proposal satisfy the
Municipality's objective of informing local and potential residents, businesses and
visitors to the area. Internal audience includes staff members who have
responsibility for information and documents to be published on the website.
Preferred and Optional Requirements
If chosen as the successful bidder, vendors must include a detailed description of
how the followed preferred requirements would also be achieved:
• Twitter, Facebook and Instagram plugins
• News feed
• Subscriptions
• Website analytics
• Community event calendar, which can be added to by community partners
• Searchable business directory, which can be updated
• Integration with the following third party tools:
o Laserfiche Forms
o Laserfiche Weblink
• Document Management functionality
• Service Request Technology or integration with Laserfiche Forms
• Other features and technology available at the developer’s discretion
Part “C” – Information to Vendors
1. RFP Closing and Submission
Website development firms wishing to submit proposals shall do so not
later than September 10, 2017 by submitting an electronic proposal in .pdf
format and any accompanying documents to Pam Myra, Municipal Clerk,
Municipality of Chester at pmyra@chester.ca
Submissions received after closing time will not be considered. Hardcopy
and facsimile proposals will NOT be accepted.
A confirmation email will be sent within 24 hours confirming receipt of
submission.
The Municipality assumes no risk or responsibility whatsoever that the
email will be received and shall not be liable to any Proponent if for any
reason a submission is not properly received.
All submissions will be formally opened and reviewed for completeness and
costs at the Municipal Office on the same day and time as the closing date.
2. Presentations
One or more Proponents may be selected for an interview/presentation
session prior to making a final selection.
3. Tentative Dates
August 1, 2017 RFP Released
September 10, 2017 Final RFP Submissions
September, 2017 Notification of Shortlisted
Candidates
October, 2017 Presentations by Selected Vendors
October, 2017 Contract Award
November-December, 2017 Work Commences
January 1, 2018 Website Soft Launch
February 2018 Website Official Launch
4. Clarification of Documents
a. Vendors who find any discrepancies or omissions in this Request for
Proposal, or who have any doubt as to the intent or meaning of
anything contained therein, shall direct questions by e-mail to the
following: Cliff Gall, Director of Information Services –
cgall@chester.ca.
b. All questions/discrepancies identified must be sent to the
Municipality before the Final Submission date.
c. Copies of all questions and answers and any addenda will be sent to
each vendor no later than three (3) business days prior to the Final
Submission date.
d. To receive addenda, you must register your intent to submit and
contact information to with the Municipal Clerk listed on the cover
page.
e. Only formal written responses to properly submitted questions will
be binding on the Municipality.
f. All responses by the Municipality (addenda) will form part of the
Request for Proposal process.
5. Addenda
Vendors may be advised by addenda, of required additions, deletions or
alterations in the requirements of the Request for Proposal documents. All
such changes shall become an integral part of the Request for Proposal
documents and shall be allowed for in arriving at the total submission price.
6. Withdrawal
A submission may be withdrawn at any time prior to the closing date and
time at the Vendor’s discretion. Withdrawal notification must be in written
letter form, signed and submitted to the Municipal Clerk in .pdf format.
Hardcopy, facsimile and telephone calls will NOT be accepted. After the
official closing date and time, all submissions received shall be irrevocable.
7. HST
The quoted prices must clearly show the Harmonized Sales Tax as a
separate item from the total price submission.
8. Submission Acceptance
The Municipality reserves the right to reject an offer to supply goods
and/or services or RFPs presented. Unless otherwise specified in this RFP,
this RFP constitutes an irrevocable offer to provide the goods and/or
services described herein for a period of sixty (60) calendar days from the
closing date of the receipt of RFP.
The Municipality reserves the right to award by item, or part thereof,
groups of items, or parts thereof or all items of the submission, and to
award Contracts to submission in whole or in part; to waive irregularities or
missions. If in so doing, the best interests of the Municipality will be
served. No liability shall accrue to the Municipality for its decision in this
regard. The acceptance of any submission is subject to appropriate funding
acceptable to the Municipality. Lowest, or any RFP, will not necessarily be
accepted.
9. Selection Criteria
Criteria Value
Local Preference 5%
Company Profile and Experience 20%
Design and Features 40%
Timeline/PM, Accessibility, Audience 10%
Fee Structure
• Website Redesign
• Ongoing Support Costs/Hosting
15%
10%
Total Score 100%
10. Proposal Layout
• Appendix A (See the end of this RFP)
• Cover Letter
• Company Profile and Experience
• Design and Features (Platform/Mandatory and Preferred/Optional
Requirements)
• Timeline and Project Management Plan
• Accessibility Compliance
• Fee Structure
• Other Potential Features and Costs
11. Insurance
The Vendor must provide the Municipality with a copy of a “Certificate of
Professional Liability Insurance” prior to commencement of the work. The
General Liability Insurance minimum will be one million dollars
($1,000,000.00) with The Municipality of Chester named as additional
insured.
The Vendor acknowledges that he/she is an independent Contractor and
shall, indemnify, protect and save harmless The Municipality of Chester, its
agents and employees from all damages, liabilities and claims of
whatsoever nature arising out of the furnishing by the Vendor, its agents or
employees of the materials and/or performing of the services covered by
this RFP. The Vendor remains responsible for maintaining the required
insurance even if the certificates are never exchanged and/or requested.
12. Contract Cancellation
The Municipality shall have the right, which may be exercised from time to
time, to cancel any uncompleted or unperformed portion of the work or
part thereof. In the event of such cancellation, the Municipality and the
Vendor shall negotiate a settlement. The Municipality shall not be liable to
the Vendor for loss of anticipated profit on the cancelled portions of the
work.
13. Health & Safety
The Vendor assumes full responsibility for conforming to all legislation
regarding the safety of his/her employees and the public on this Contract
and all notices required to comply with the legislation. Accordingly, the
Vendor shall provide a copy of the applicable WSIB Certificate of Clearance
before starting the project and upon completion.
14. Responsibility
The Municipality shall not be responsible for any liabilities, costs, expenses,
loss or damage incurred, sustained or suffered by any Vendor prior to,
after, or due to the acceptance or the non-acceptance of an RFP save as
provided in the Contract. The Municipality reserves the right to reject any
or all RFP’s and to waive formalities as the interest of the Municipality may
require without stating reasons, therefore, and the lowest or any RFP will
not necessarily be accepted.
15. Payment
Unless otherwise negotiated, the Municipality shall pay a 35% progress
payment once a prototype has been signed off by the Director of
Information Services and 45% after soft launch with the balance 15 days
after satisfactory completion of the Project with the official launch as
signed off by the Director of Information Services.
The Municipality shall have the right to withhold, from any sum otherwise
payable to the Vendor, such amount as may be sufficient to remedy any
defect or deficiency in the work, pending correction of the same.
16. Optional Contract Extension
The Municipality reserves the option to extend the Contract. Any renewal
will be based upon quality of service, mutual agreement and annual price
negotiations between the Vendor and the Municipality.
17. Confidentiality and Freedom of Information
The Municipality complies with the Personal Information International
Disclosure Protection Act (S.N.S 2006, c.3). This Act creates obligations for
the Municipality and its service providers when personal information is
collected, used or disclosed. Requirements include limiting storage, access
and disclosure of personal information to Canada, except as necessary or
otherwise required by law.
All records submitted to the Municipality become the property of the
Municipality and are governed by the Freedom of Information and
Protection of Privacy (FOIPOP) provisions defined in Part XX of the
Municipal Government Act. The records will not be returned after the
selection process is completed.
The Municipality will release the following information upon request by any
interested party:
• Total value of the contract
• The list of potential bidders who received the tender document
• The list of those who submitted a proposal
This information may also be posted on the website of the Municipality.
FOIPOP allows persons a right of access to all records in the custody or
under the control of the Municipality, including other information
contained in a bidder’s submission. The Part prohibits the Municipality from
disclosing information that would significantly harm business interests or
would be an unreasonable invasion of personal privacy of a third party.
If the Municipality receives a request under FOIPOP for access to records in
the bidder’s submission, the bidder will be given a notice allowing it to
consent to disclosure, or to explain why the disclosure would significantly
harm the bidder’s business interests or would be an unreasonable invasion
of personal privacy. The bidder will bear any costs incurred in responding to
this notice.
18. Conflict of Interest
By submitting a proposal, the Vendor confirms that:
• No person, firm, or corporation, other than the Bidder, has any
interest in this Proposal in the proposed contract.
• The Proposal is made without any connection, comparison of figures
or arrangements with or knowledge of any other corporation, firm or
person making a proposal for the same work and is in all respects fair
and without collusion or fraud.
• No member of Council and no officer or employee of the
Municipality is or will become interested directly or indirectly as a
contracting party, partner, shareholder, surety or otherwise in any
portion of the profits thereof, or in any of the monies to be derived
there from.
APPENDIX "A" – Proposal Application Form
Municipality of Chester - Website Redesign & Support Services
General Information:
This form must be signed by a person authorized to make proposals and enter into contract
negotiations on behalf of your firm. To be considered for this project, the submittals must be
completed in accordance with this RFP and this cover sheet attached.
Company Legal Name:
Authorized Official (Signature):
Date:
Title:
Print Name:
Contact Person for Project:
Address:
Phone Number:
Fax Number:
Email Address:
REQUEST FOR DIRECTION
Prepared By:Chad Haughn Date August 17, 2017
Reviewed By:Date
Authorized By:Date
CURRENT SITUATION
The community use of New Ross School was added as an item in the Recreation & Parks
Department strategic priority list. The Recreation & Parks Director was asked to complete
some preliminary work on the concept and report back to Council for further direction.
BACKGROUND
On November 24, 2016, the New Ross Community Partnership Committee made a presentation
to Council requesting that the Municipality enter into a joint use agreement with the South
Shore Regional School Board (SSRSB)related to the New Ross School.Council referred the item
to their forthcoming strategic planning exercise.
In January 2017,Council completed their strategic planning. The New Ross School agreement
was identified but not ranked as a high priority. However, the Recreation & Parks Director was
asked to do some preliminary work and report back to Council on the implications of entering
into a community use agreement.
On July 7, 2017, confirmation was received from South Shore Regional School Board
Superintendent Scott Milner that the SSRSB is open to explore a partnership agreement with
the Municipality of Chester for the community use of New Ross School.
DISCUSSION
The community of New Ross currently has access to the New Ross School facility, primarily due
to the cooperativeness of the principal and the good working relationship between the school
and the New Ross Family Resource Centre who coordinate much of the current access.
A formal joint use agreement between a school board and a municipality is an approach to
maintain consistent use of a school facility by the community, even if there are changes in
administration.
The New Ross Partnership Committee identified a list of potential options for the community
use of the school facility ranging from recreation programs to the setup of a day care to
business office space. If there is an expectation that the Municipality will increase program
REPORT TO:Municipal Council
SUBMITTED BY:Chad Haughn,Recreation & Parks
Department
DATE:August 17, 2017
SUBJECT:New Ross School Community Use
Agreement
ORIGIN:Council Strategic Priorities Chart
2 Request For D/Direction
offerings, coordinate rentals and manage these uses, a lot of staff time and resources would be
required. If partners are involved and take on this role, there would be less resources required
from the Municipality.
If the Municipality of Chester were to pursue a joint use agreement with the SSRSB for access to
the New Ross School, there are several factors that should be considered:
1.Coordination
Previous experience has taught us that someone needs to take a lead role to coordinate
community access and to ensure conditions outlined in the agreement are followed.
Consistent coordination of bookings (scheduling and rental agreements),supervision of
door monitor staff,regular communication with custodians and working with school
administration is key to successful community use of schools.
2.Committee Structure
Community school agreements normally have a requirement for committee(s)(i.e.a
Joint Use Committee and/or a Management Committee) to be established to help deal
with any conflicts and to make shared decisions about projects and priorities. These
committees may meet frequently early in the partnership and then less frequently as
the partnership progresses (i.e. three or four times a year).
3.Door Monitoring
The Community School Coordinator (CSC)has existing door monitor staff at FHCS and
ACES who supervise visitors, unlock/lock the facility, setup rooms, etc…Similar staff
would most likely be required for New Ross School.
Comparative Cost:FHCS $9,000 annually
ACES $1,500 annually
4.Custodial Service
The CSC works closely with FHCS & ACES custodians to ensure areas of the building are
cleaned at appropriate times and to avoid conflicts and repeated cleaning efforts.
Custodians are school board staff and the Municipality is required to abide by school
board policy and union requirements as it relates to their work. At FHCS and ACES there
is a minimum four hour call out for a custodian to clean-up after weekend use.
Comparative Cost:FHCS $4,000 annually
ACES $500 annually
5.Funding
To help offset the cost of operating the two existing community schools, funds are
raised through facility rentals and program revenue. Remaining expenses are covered
through the Recreation & Parks budget.
Comparative Cost:FHCS Program Revenue, $15,000 FHCS Program expense, $14,000
FHCS Facility Rentals, $5,000
3 Request For D/Direction
ACES Program Revenue, $500 FHCS Program Expense $400
ACES Facility Rental, $1,000 annually
IMPLICATIONS
Policy
NA
Financial/Budgetary
If a joint use agreement is implemented, there would be a need for additional resources the
manage the community usage.If the FHCS model is used, it is estimated that the annual cost
would be $3,000 –5,000 annually plus staff coordination time.
Environmental
NA
Strategic Plan
Strengthen and support environmental, cultural, and social resources
Work Program Implications
In the immediate future, staff time would be required to meet and negotiate an agreement
with the SSRSB and develop policies and establish day to day operations. Long term,
coordination and management of the community use would be required.
OPTIONS1.Pursue a joint use agreement with the SSRSB for the New Ross School and allocate
appropriate resources for expanded community use of the facility.
Coordination Options:
a)As outlined, coordination is an important part of a community school. The obvious
choice for the coordination work is the existing Community School Coordinator (CSC),
however, the CSC is currently at full capacity. A reduction in program offerings or other
services would be required to include the management of the New Ross School with the
CSC position.
b)A second option could be a reduction in program offerings and services offered by the
Community Development Coordinator to accommodate the New Ross School
coordination. Currently, the Community Development Coordinator has office hours in
New Ross and it would be possible to enhance this work and focus on the school.
c)Thirdly, since the New Ross Family Resource Centre is currently using the school facility,
an option may be to explore a partnership between the Municipality and the Resource
Centre, or another community organization, for the coordination of the community use
of the school. This partnership would most likely require some funding support.2.Take no further action and New Ross School would continue to operate as it has in the
past, without formal municipal involvement.