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2. RESIDENTIAL FIRE SPRINKLERS EXTINCTEURS
AUTOMATIQUES RÉSIDENTIELS |
Committee RecommendationS
That Council:
1.
Approve that Ottawa Fire Services continue its
commitment to maximizing the number of households equipped with working smoke
alarms through the Wake Up! Get a working smoke alarm campaign.
2.
Petition the Province to adopt a progressive,
incremental approach to building code amendments to expand mandatory fire
sprinkler regulations to high risk occupancies and residential buildings three
storeys or less.
3.
Communicate to the Province that the City supports Bill
72, which would authorize municipalities to pass by-laws requiring the
installation of fire sprinkler systems in all new construction including
low-rise and single family dwellings.
4.
Encourage homebuilders to offer sprinkler systems as
options in new home construction.
5.
Petition the Federal and Provincial governments to
establish an incentive (e.g., rebate) program to encourage homebuilders and
homeowners to install fire sprinklers.
RecommandationS du Comité
Que le Conseil :
1.
approuve
que le Service des incendies d’Ottawa de maintenir son engagement à maximiser
le nombre de foyers équipés de détecteurs de fumée fonctionnels par
l’intermédiaire de la campagne Réveillez-vous! Procurez-vous un détecteur de
fumée qui fonctionne;
2.
présente
une pétition au gouvernement provincial en vue de l’adoption d’une approche
progressive en élargissant l’application du Code
du bâtiment de l’Ontario de sorte que les extincteurs automatiques
deviennent obligatoires pour les constructions à risque élevé et immeubles
résidentiels de trois étages et moins;
3.
communique
à la province l’appui de la Ville au projet de loi 72, qui vise à
autoriser les municipalités à adopter une réglementation exigeant
l’installation d’extincteurs automatiques dans toute nouvelle construction, y
compris les petits immeubles et résidences unifamiliales;
4.
incite
les constructeurs à offrir des systèmes d’extincteurs automatiques en option
dans les nouvelles résidences;
5.
présente
une pétition aux gouvernements fédéral et provincial en vue de la création d’un
programme de mesures incitatives (p. ex. un rabais) afin d’encourager les
constructeurs et propriétaires à installer des extincteurs automatiques.
Documentation
1.
Deputy
City Manager's report, City Operations dated 24 February 2009
(ACS2009-COS-EPS-0015).
2. Extract of Draft Minute, 9 March 2009.
Report to/Rapport au:
Community and Protective Services Committee
Comité des services communautaires et de protection
and Council/et au Conseil
24 February 2009 / le 24 février 2009
Submitted by/Soumis par:
Steve Kanellakos, Deputy City Manager/Directeur municipal adjoint,
City Operations / Opérations municipales
Contact Person/Personne ressource : Rick Larabie, Chief
Ottawa
Fire Services/Service des incendies d' Ottawa
(613)
580-2424 x 29411, Rick.Larabie@ottawa.ca
SUBJECT: |
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OBJET :
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REPORT
RECOMMENDATIONS
That the Community and
Protective Services Committee recommend that Council:
1. Approve
that Ottawa Fire Services continue its commitment to maximizing the number of
households equipped with working smoke alarms through the Wake Up! Get a
working smoke alarm campaign.
2. Petition
the Province to adopt a progressive, incremental approach to building code
amendments to expand mandatory fire sprinkler regulations to high risk
occupancies and residential buildings three storeys or less.
3. Communicate
to the Province that the City supports Bill 72, which would authorize
municipalities to pass by-laws requiring the installation of fire sprinkler
systems in all new construction including low-rise and single family dwellings.
4. Encourage
homebuilders to offer sprinkler systems as options in new home construction.
5. Petition
the Federal and Provincial governments to establish an incentive (e.g., rebate)
program to encourage homebuilders and homeowners to install fire sprinklers.
RECOMMANDATIONS DU
RAPPORT
Que le Comité des services communautaires et de
protection recommande au Conseil :
1.
d’approuver
que le Service des incendies d’Ottawa de maintenir son engagement à maximiser
le nombre de foyers équipés de détecteurs de fumée fonctionnels par l’intermédiaire
de la campagne Réveillez-vous! Procurez-vous un détecteur de fumée qui
fonctionne;
2.
de
présenter une pétition au gouvernement provincial en vue de l’adoption d’une
approche progressive en élargissant l’application du Code du bâtiment de l’Ontario de sorte que les extincteurs
automatiques deviennent obligatoires pour les constructions à risque élevé et
immeubles résidentiels de trois étages et moins;
3.
de
communiquer à la province l’appui de la Ville au projet de loi 72, qui
vise à autoriser les municipalités à adopter une réglementation exigeant
l’installation d’extincteurs automatiques dans toute nouvelle construction, y
compris les petits immeubles et résidences unifamiliales;
4.
d’inciter
les constructeurs à offrir des systèmes d’extincteurs automatiques en option
dans les nouvelles résidences;
5.
de
présenter une pétition aux gouvernements fédéral et provincial en vue de la
création d’un programme de mesures incitatives (p. ex. un rabais) afin
d’encourager les constructeurs et propriétaires à installer des extincteurs
automatiques.
EXECUTIVE SUMMARY
At its meeting on January 17, 2008, the Community and Protective Services (CPS) Committee passed a motion directing staff to prepare a full report to include: information and analysis on smoke alarms, the feasibility of municipal by-law to require residential fire sprinklers in all new residential construction in the City of Ottawa, and the efficacy of approaching the Ontario Government to change the Ontario Building Code to make sprinkler systems mandatory in all new residential construction across the province.
Both early detection (e.g., smoke alarms) and on-site suppression (e.g., fire sprinklers) are critical components of a Comprehensive Fire Safety model.
Functioning smoke alarms are absolutely vital to facilitating escape from a burning home and Ottawa Fire Service (OFS) has worked diligently through the Wake Up! Get a working smoke alarm campaign to raise awareness and compliance with respect to functioning smoke alarms. The number of Ottawa homes visited that did not have working smoke alarms has reduced from 39% in the fall of 2005 to 15% in 2008, and the OFS is committed to continuation of that successful campaign.
Fire sprinklers reduce the speed and spread of fire and lengthen escape times thereby reducing property damage and saving lives. These benefits are borne out by statistics from jurisdictions that have implemented fire sprinkler legislation such as Vancouver and Scottsdale.
A 2003 National Fire Protection Association (NFPA) study, determined that homes protected by fire sprinklers had 78 percent fewer fire deaths and 42 percent less property damage.
Since the January 17, 2008, CPS Committee meeting, the Ontario Government has amended the Ontario Building Code to mandate residential sprinkler installation into the construction of all new condominiums and apartments four-storeys or higher effective April 1, 2010. The OFS is supportive of this regulatory change as well as its introduction to the largest multi-tenant occupancies, which will have the highest benefit/cost to the community.
In keeping with a progressive, incremental approach to fire safety, the OFS recommends that the Province be encouraged to expand the mandatory regulations to include residential properties three storeys or less, using a phased approach, until all residential occupancies are protected. Targeting new construction is the most economical means of gradually implementing changes intended to further protect homes and lives from fire.
At the same time, the OFS recommends that the City of Ottawa endorse Bill 72, the Municipal Residential Sprinkler Act, 2008, which has received second reading. It would authorize municipalities to pass by-laws requiring the installation of fire sprinkler systems in new residential buildings, including low-rise and single family dwellings.
Subject to approval of the Bill, the City would consult with the Greater Ottawa Home Builders’ Association (GOHBA) and the wider community to propose a regulation that best meets the needs of the City of Ottawa within the context of the City’s fire risk. Depending on the status of changes to the building code implemented by the province, the City may or may not choose to enact a City of Ottawa by-law, but successful passage of the bill will provide the City with the authority to regulate as it deems appropriate.
The OFS agrees with the Greater Ottawa Home Builders’ Association proposal that homebuilders be encouraged to offer sprinkler systems as options in new home construction. Prospective homeowners may well be willing to absorb a cost of $3,000 to $4,000 to benefit from the added fire protection afforded by a fire sprinkler system. Being offered the option will raise awareness of the availability of the technology and its benefits.
Finally, the OFS proposes that the senior levels of government be requested to implement an incentive (rebate) program to encourage homebuilders and homeowners to install fire sprinklers.
Details of the research and recommendations of the OFS are contained in the following report.
SOMMAIRE
À sa
réunion du 17 janvier 2008, le Comité des services communautaires et
de protection (SCP) a adopté une motion demandant au personnel de rédiger
un rapport complet comprenant des renseignements et une analyse sur les détecteurs
de fumée; la faisabilité d’une réglementation municipale exigeant
l’installation d’extincteurs automatiques dans toute nouvelle construction
résidentielle à Ottawa; et l’utilité d’approcher le gouvernement provincial
pour qu’il modifie le Code du bâtiment de
l’Ontario de sorte à rendre obligatoires les extincteurs automatiques dans
toute nouvelle construction résidentielle dans la province.
Tant la détection rapide (p. ex. par un
détecteur de fumée) que la suppression immédiate (p. ex. grâce à des extincteurs
automatiques) constituent des composantes essentielles d’un modèle de sécurité
incendie complet.
Des détecteurs de fumée fonctionnels sont
absolument indispensables à l’évacuation rapide d’une résidence en feu. Le
Service des incendies d’Ottawa (SIO) a œuvré, par l’intermédiaire de la
campagne Réveillez-vous! Procurez-vous un détecteur de fumée qui fonctionne, à sensibiliser la population à
l’importance d’avoir des détecteurs de fumée fonctionnels et à accroître la
conformité à la réglementation connexe. Le nombre de résidences d’Ottawa
qui n’étaient pas équipées de détecteurs de fumée fonctionnels au moment de la
visite du SIO est passé de 39 % à l’automne 2005 à 15 % en 2008;
le SIO s’est engagé à poursuivre cette campagne fructueuse.
Les extincteurs automatiques réduisent la
vitesse de propagation du feu, et sa propagation en soi, en plus de donner plus
de temps aux occupants pour évacuer la résidence, ce qui réduit les dommages à
la propriété et sauve des vies. Ces avantages sont confirmés par les
statistiques compilées par des compétences qui ont mis en œuvre une législation
sur les extincteurs automatiques, comme Vancouver et Scottsdale. Une étude
menée en 2003 par la National Fire Protection Association (NFPA)
américaine a établi que, dans les résidences protégées par des extincteurs
automatiques, les incendies font 78 % moins de morts et 42 % moins de
dommages à la propriété.
Depuis
la réunion du 17 janvier 2008 du Comité des SCP, le gouvernement
ontarien a modifié le Code du bâtiment
de sorte à rendre obligatoire l’installation d’extincteurs automatiques dans
tout nouvel immeuble à logements en copropriété et à appartements de quatre
étages et plus à compter du 1er avril 2010. Le SIO appuie
ce changement législatif de même que son application aux plus grandes
constructions à logements multiples; il s’agit de la mesure présentant le
meilleur rapport coûts-avantages pour la collectivité.
Suivant
son approche progressive en matière de sécurité incendie, le SIO recommande
d’inciter le gouvernement provincial à élargir progressivement l’obligation aux
propriétés résidentielles de trois étages et moins, et ce, jusqu’à ce que
toutes les constructions résidentielles soient protégées. Cibler les nouvelles
constructions constitue la manière la plus économique de mettre graduellement
en place des changements visant à mieux protéger les résidences et les
personnes contre les incendies.
En même
temps, le SIO recommande à la Ville d’Ottawa d’appuyer le projet de
loi 72, la Loi de 2008 sur les
extincteurs automatiques résidentiels dans les municipalités, qui a passé
l’étape de la deuxième lecture. Ce projet de loi vise à autoriser les
municipalités à adopter une réglementation exigeant l’installation
d’extincteurs automatiques dans toute nouvelle construction résidentielle, y
compris les petits immeubles et les résidences unifamiliales.
Si le
projet de loi était adopté, la Ville consulterait la Greater Ottawa Home
Builders’ Association (GOHBA) et la collectivité afin de proposer une
réglementation répondant le mieux possible aux besoins d’Ottawa en ce qui a
trait aux risques d’incendies. Selon le statut des modifications au Code du bâtiment mises en œuvre par le
gouvernement provincial, la Ville pourrait choisir de promulguer un règlement,
mais l’adoption du projet de loi donnera certainement à la Ville le pouvoir de
réglementer en la matière selon sa discrétion.
De plus, le SIO est d’accord avec la GOHBA, qui
propose que l’on incite les constructeurs à offrir des systèmes d’extincteurs
automatiques en option dans les nouvelles résidences. Les futurs propriétaires
pourraient en effet être disposés à absorber des coûts de 3 000 $ à
4 000 $ pour profiter de la protection accrue qu’offre un système
d’extincteurs automatiques en cas d’incendie. En leur offrant cette
possibilité, on les sensibilise à la disponibilité de cette technologie et à
ses avantages.
Enfin,
le SIO suggère que l’on demande aux instances gouvernementales supérieures de
créer un programme d’incitatifs (p. ex. un rabais) afin d’inciter les constructeurs
et propriétaires à installer des extincteurs automatiques.
Les détails des recherches menées par le SIO,
ainsi que ses recommandations, sont fournies dans le rapport qui suit (en
anglais seulement).
BACKGROUND
At its meeting of January 17, 2008 the Community and Protective Services Committee approved the following motion:
That City staff be directed to prepare a full report including information and an analysis of fire alarms, outlining the feasibility of a municipal by-law to require residential fire sprinklers in all new residential construction in the City of Ottawa … and that the report also outline the efficacy of approaching the Ontario Government to change the Ontario Building Code to make sprinkler systems mandatory in all new residential construction across the province.
Comprehensive Fire Safety Effectiveness Model
The provision of fire protection in Ontario is a municipal responsibility. The level and amount of fire protection provided is determined by the residents of the community through decisions made by and support provided by the local municipal council.
The Office of the Fire Marshal has developed the Comprehensive Fire Safety Effectiveness Model[1], which is used as a basis for evaluating fire safety effectiveness in the local community. The model looks at community fire protection as the sum of eight key components, all of which impact on the fire safety of the entire community. Deficiencies in one of the components can be offset by enhancements in another component.
Comprehensive
Fire Safety Effectiveness Model
Briefly, components of the comprehensive fire safety effectiveness model are as follows:
· Impact of Fire: Depending on the characteristics of the local community the impact of fire will have different impacts in terms of property loss, economic loss, and environmental loss.
· Public Attitude: Properly designed public fire safety education programs will significantly improve public attitudes toward the prevention of fire resulting in lower fire losses.
· Fire Risk: The characteristics of the local built community (i.e., the concentration of high rise, commercial and industrial occupancies, age of construction) all impact fire risk and the mitigation strategies that are implemented to reduce fire losses.
· Fire Prevention Program Effectiveness: Legislation, regulations and standards pertaining to fire safety focus primarily on fire prevention. Enforcement of these codes is one of the most effective ways of reducing the loss of life and property due to fire.
· Early Detection: The presence of early warning detection capabilities notifies occupants and allows them sufficient time to escape. It also allows for earlier notification of the fire department.
· On-Site, Built-In Suppression Capabilities: Traditionally, the use of built-in suppression has been limited to fixed fire protection systems associated with commercial, industrial and manufacturing occupancies. Application of this concept has been limited in the residential environment. These systems, particularly the use of automatic sprinkler systems play an important role in minimizing the effects of fire by controlling its spread and growth which enables the fire department to extinguish the fire more quickly and easily.
· Intervention Time: This is the time from ignition until effective firefighting streams can be applied to the fire. Fire department intervention time is crucial in minimizing the consequences of a fire.
· Fireground Effectiveness: relates to the effectiveness of the fire suppression program through the appropriate training and equipping of firefighters to ensure an effective and efficient response to fires.
All of the elements of the Comprehensive Fire Safety Model are interdependent. The Ottawa Fire Services recently reported to Committee and Council with a Fire Station Location Study that focused primarily on Community Fire Risk and its impact on Intervention Time to propose a model for the appropriate location of Fire Stations as the City grows.
This report is focused most directly on Early Detection (e.g., household fire alarms) and On-Site Built-In Suppression Capabilities (e.g., residential sprinkler systems) however these elements are impacted by the Fire Prevention program and have their own impacts on Intervention Time and Fireground Effectiveness.
DISCUSSION
Smoke Alarms
The Ontario Fire Code requires all single family, semi-detached and town homes in Ontario, whether owner-occupied or rented, to have a working smoke alarm on every storey of the residence and outside all sleeping areas. This provincially mandated smoke alarm law has made significant contributions in ensuring personal safety in a home fire. According to studies published by the National Fire Protection Association (NFPA), a leading U.S.-based non-profit organization, which advocates scientifically based consensus codes and standards, smoke alarms cut the risk of fire fatality by nearly half.
A summary report by the Canadian Mortgage and
Housing Corporation (attached as Document 3)[2]
indicates that in 1987, 277 people died in fires in one and two family dwellings across the
country, the vast majority of them in homes built before 1980. This represents a drop in fire deaths to 4.5
per 100,000 homes in 1987 from 7.9 in 1980.
There are a number
of reasons for this improvement in safety, but a significant contributing
factor has been the advent of the battery operated and wired in place smoke
alarm. New homes, which have been required by building codes to have mandatory
wired in smoke alarms since early in the 1980’s, provide a higher level of
early warning (estimated 1.4 deaths per 100,000) than the general housing
stock.
Notwithstanding these improvements, fires continue to
have significant impacts on local communities.
Over the past eight years in Ontario, there has been a per year average
of 16,000 loss fires with an average of 97 deaths, 860 injuries and $431
million in property damage annually.[3]
Statistics also show that from 2003 to 2007, 73% of fatal fires were preventable. The status of the smoke alarm in these instances was follows: [4]
- Smoke alarm present and operating: 39%
- Smoke alarm present, did not operate: 21%
- Alarm present, operation undetermined: 14%
- No smoke alarm: 26 %
Residential fires only represent 41% of structural fires, but they represent 82% of the fire fatalities.[5] In Ottawa, there have been 35 deaths related to residential fires since amalgamation.
Ottawa Fire Services (OFS) have been actively promoting
the value and legal responsibility of having working smoke alarms through the Wake
Up! Get a working smoke alarm public awareness and door-to-door campaign.
Since the campaign began in Fall 2005, OFS have visited 51,712 homes and have
provided residents a total of 8,774 smoke alarms/batteries.
Statistics also
show that the message about the importance of smoke alarms is resonating among
the public. In fall 2005, 39% of the homes visited did not have a working smoke
alarm, compared to 26% in 2006 and 23% in 2007. As of the fall of 2008, 15% of
homes did not have working smoke alarms.
Most fatal fires occur at night, when residents are least likely to be alert to danger. Residents depend on the sound of the smoke alarm to alert them. If the smoke alarm is not operable or is not present, it is quite possible for a fire to reach a critical, uncontrollable size before a person notices smoke and flames.
NFPA studies have also shown that the general population may not be aware of urgency with which they need to evacuate. Fully one third thought they would have at least six minutes; and only 8 % said that their first thought upon hearing a smoke alarm was to get out.[6]
Research by the National Institute of Standards and Technology (NIST) [a non-regulatory agency of the United States Department of Commerce that develops and promotes measurement, standards, and technology] found that house fires today burn faster than house fires 30 years ago. Studies in the 1970s showed a safe escape time of 17 minutes. In 2005, it decreased to an escape time of 3 minutes, or less in some circumstances. This drastic drop in escape time is primarily due to the contents of our modern homes, such as furnishings, that burn faster and more intensely.[7]
These findings have been further supported by a December 2008 study of the National Research Council of Canada[8]. This recent study reiterated the rapid severe fire conditions produced by polyurethane foam widely used in upholstered furniture, and further found that the time to reach structural failure in modern joists (wood I-joists, steel C-joists, metal plate and metal web wood truss assemblies) were 35-60% shorter than that for solid wood joist assemblies.
Smoke alarms work but only if the occupants are alert or able to wake from sleep and evacuate the residence quickly. Young children, older adults and people with disabilities are at higher risk of being injured or killed in a fire because they may be unable to react quickly.
Limitations
of smoke alarms include:
- cannot operate without power (household current or
battery)
- may not function due to improper location or age
- may not detect a fire in a remote or concealed area,
in chimneys or walls, on roofs, or on the other side of closed doors
- may not be audible through closed doors, above other
activities, or by hearing or otherwise impaired individuals or sound
sleepers
- require the occupant to be able to safely evacuate in a very short timeframe.
The overall value of fire alarms cannot be denied and the Ottawa Fire Services (OFS) is working diligently, and with great success, to ensure that Ottawa residences are properly equipped with working smoke alarms. However, as demonstrated by the Comprehensive Fire Safety Effectiveness Model described earlier in this report, early detection by itself is not sufficient to optimally safeguard a home against fire.
Residential Fire Sprinklers
Fire sprinklers help to contain and suppress fires thereby providing an added layer of protection. Sprinklers provide life saving properties and injury prevention possibilities that would not be present in homes that contain only smoke alarms. Essentially, if a fire broke out in a home, an installed sprinkler system would do the following:
- Activate shortly after the smoke alarm sounds – once the fire has raised the room temperature to above approximately 75 degrees Celsius (165° F).
- The heat sensitive element in the sprinkler releases water in a fine mist. (Each sprinkler head responds independently).
- Activation of the sprinkler system would give occupants more time to safely evacuate the premises.
- The sprinkler system would continue to suppress or control the fire from the time it takes to call 9-1-1, alert Fire Services of their emergency, their travel time, set-up and suppression.
If the sprinkler system does not suppress a fire, it would at the very minimum, contain it by preventing its growth and reduce property loss.
As previously stated, today’s home improvement products are produced with materials that burn hotter and with more intensity. With new technology it has become a common practice for household materials to be made from petroleum-based products, such as: plastics, foams, insulations, cushions, carpets, drapes and appliances. Petroleum based products and many other new age household materials can cause fire to spread more quickly, reducing the amount of time it takes for a room to reach its flashover point. At flashover point the room becomes fully engulfed and will rapidly spread to the remainder of the house and make suppression by the fire department that much more difficult and of a longer duration. The addition of automatic sprinklers to modern houses would help reduce the effect these types of materials have in fire situations by helping to suppress the initial fire and reducing its spread before fire suppression personnel arrives on scene. Fires that are not allowed to quickly grow in size are extinguished faster, with less water used and have a lower negative effect on the property and surrounding environment.
In terms of the Comprehensive Fire Safety Effectiveness Model outlined earlier in this report, the Built-In Fire Suppression component is an element that is largely absent in residential properties in Ottawa. In accordance with the comprehensive model, this deficiency has to be compensated for, as much as possible, by other elements of the model such as early detection and timely intervention. However, there is no doubt that implementation of a built-in suppression system would make for a more successful and complete protection plan model.
Experience of Other Municipalities
Although statistics on the benefits of residential fire sprinklers exist, data collected on sprinkler systems is still relatively low and represents only a very small population when compared to all residential applications across Canada and North America.
Communities such as Scottsdale, Arizona and Vancouver, British Columbia have taken leadership roles in the reduction of fire deaths by enacting residential sprinklers ordinances. Scottsdale made residential fire sprinklers mandatory in 1986, and Vancouver in 1990. Both jurisdictions have statistics that support the implementation of fire sprinklers in reducing fire fatalities, fire related injuries and average fire loss.
The Scottsdale 15 year report has shown that the city has reduced its fire fatalities by a minimum of 50%. Data collected by the fire department during that period indicate that 13 lives have been saved and more than $20 million in property loss has been prevented. During the last three years alone, the average fire loss in homes with sprinklers was $3,534 compared to $45,019 for homes without sprinklers – a 92% reduction in property loss. At the time of the study, in a community of 223,000 people, more than 53 % of Scottsdale’s homes were protected with fire sprinkler systems. It is estimated that in January 2006, 20 years after the adoption of the original ordinance, Scottsdale has more than 49,000 single-family residential properties protected by a built-in automatic fire sprinkler.[9]
Vancouver has noted similar
gains. Since 1990, there has been a significant reduction in the City of
Vancouver annual fire casualty statistics (despite a 25% population growth in
the past decade) as compared to previous years and other cities without
residential sprinkler by-laws. The City has reduced its fire fatalities to an
average of 3.33 per year (0.6 per 100,000) from an average of 8.8 a year for
the previous decade. In 1998 the city experienced a year without any fire
deaths. The average cost of property damage is
$1,065.00 compared with $13,937.00 in a home without sprinklers.[10]
In
2003, an NFPA study found that in the United States from 1989 to 1998, the
average direct property damage per fire was reduced by 42 per cent when a home
was protected by sprinklers. In addition, the study estimated that fire deaths
were reduced by 78 per cent.[11]
Cost
The CMHC Research Highlight report (attached as Document 3) summarizes research on smoke alarms and fire sprinkler from a number of sources and cites a 1998 study which identified a per square foot cost for installation of residential sprinkler system ranging from $1.45 per spare foot (for apartments) to $3.00 per square foot (for singles, semis and townhouses). Overall costs for small houses (1,500 square feet finished area – constituting 2,000 square feet sprinklered area including basement) were estimated to range between $3,000 and $6,000. Larger houses would be more expensive overall but would generally cost less per square foot.
In September 2008, the Fire Protection Research
Foundation, an independent non-profit that conducts
research in support of the NFPA mission, released a new report entitled, Home Fire
Sprinkler Cost Assessment and found the cost of installing sprinkler systems to
the home builder averaged $1.61 (U.S.) per sprinklered square foot (the total
area of spaces with sprinklers) based on the review of 30 home installations.
This cost includes all costs to the builder associated with the system
including design, installation, and other costs such as permits, additional
equipment, increased tap and water meter fees – to the extent that they apply.[12]
Building Code Amendment - Fire Sprinklers in Large Residential Buildings (O. Reg. 205/08)
Since the January 2008 Community and Protective Services (CPS) Committee meeting where staff were directed to review the efficacy of residential fire sprinklers, the Ontario Government amended the Ontario Building Code to mandate residential sprinkler installation in the construction of all new condominiums and apartment buildings four-storeys or higher. The changes, announced on June 10, 2008, by Municipal Affairs and Housing Minister Jim Watson, will take effect on April 1, 2010.
The new requirements will apply to new construction, additions to existing buildings, floors of existing buildings that undergo a change of major occupancy, and floor areas that undergo extensive renovations. Sprinkler requirements will apply throughout the building, including residential suites, service areas and common areas, such as corridors. They also cover the residential portions of mixed-use buildings higher than three storeys.
The new requirements do not apply to smaller residential buildings, including houses and certain forms of four-storey stacked townhouses having specific fire safety features, such as independent exits, will also be exempt.
The Building Code does not mandate the retrofit of existing buildings where no construction is proposed.
Bill 72 - The Municipal Residential Sprinkler Act
On May 29, 2008, Bill 72, the Municipal Residential Sprinkler Act, 2008 received Second Reading in the Ontario Legislature. The Bill seeks to amend the Building Code Act and the Municipal Act to authorize municipalities to pass by-laws requiring the installation of fire sprinkler systems in new residential buildings, including low-rise and single family dwellings.[13]
A briefing package respecting Bill 72 is attached as Document 1. That briefing package includes a Question and Answer component which undertakes to dispel many of the criticisms related to sprinkler systems including concerns of reliability, freezing, water damage, etc.
Consultation Results
In undertaking the review of fire alarms and fire sprinklers, staff primarily undertook a technical (literature and best practices) review. Staff did undertake to consult with the home building industry as home builders would be tasked with implementation of any mandatory provisions related to the installation of residential fire sprinklers.
Staff consulted with the main construction companies and homebuilders in the Ottawa area regarding this issue. All the builders indicated that they would support the official opinion of the Greater Ottawa Home Builders’ Association (GOHBA).
The GOHBA provided a position paper respecting its opposition to mandatory residential fire sprinklers. The GOHBA position paper, and the CMHC study, which is the main study cited within the position paper, are both attached in their entirety (as Documents 2 and 3 respectively) so that members of Council have the full benefit of the arguments put forward by the association.
Highlights of arguments put forward by GOHBA are as follows:
· 74 percent of Ontario’s stock is more than 20 years old (predating mandatory hard-wired smoke detectors) while new homes are more fire resistant than ever, therefore mandatory fire sprinklers in new homes would protect the homes least susceptible to fire.
· 37 percent of Canadian homes do not have a working smoke alarm. The cost to install functioning smoke alarms in unprotected houses is small compared to the cost to install sprinklers – and the impact on safety is much higher. The cost benefit of installing smoke alarms remain greater than for sprinklers in all new homes.
· Smoke alarms save lives while fire sprinklers save property. The earliest warning, usually from smoke alarms, offer residents the best chance of escape.
· GOHBA urges the City to develop sound public policy based on accurate data and analysis to ensure the policy addresses the root of the problem.
Accordingly, GOHBA recommends that the City:
· Concentrate efforts on ensuring that all homes are equipped with properly functioning smoke detectors;
· Encourage the Province to consider tougher legislation and enforcement mechanisms to eliminate the number of homes still unprotected by smoke alarms;
· Invest more in public education to make homes without alarms socially unacceptable;
· Encourage home builders to offer sprinkler systems as options;
· Consider any sprinkler-related proposals within the existing multi-stakeholder provincial process for evaluating changes to the building code.
Ottawa Fire Services
(OFS) Response and Recommendations
The Ottawa Fire Services (OFS) disagrees that new homes are less susceptible to fire. National Fire Protection Association (NFPA) analysis of fire data shows structure age is not a predictor of fire rates. This is because most fires occur because of human behaviour[14]. Study results provided earlier in this report noted that modern home furnishings, which burn faster and more intensely, have resulted in a significant decrease in escape times over the past 30 years – from 17 minutes in the 70s to as little as 3 minutes today.
The OFS agrees that functioning smoke alarms are absolutely vital to facilitating escape from a burning home and has worked diligently through the Wake Up! Get a working smoke alarm campaign to raise awareness and compliance with respect to functioning smoke alarms. As noted previously, the number of homes visited that did not have working smoke alarms has reduced from 39% in fall of 2005 to 15% in 2008 – and the OFS is committed to continuing its campaign throughout 2009 and beyond.
At the same time, the OFS firmly believes that on-site suppression is a critical component of a Comprehensive Fire Safety model, which reduces the speed and spread of fire, lengthens escape times, thereby reducing property damage and saving lives. These benefits are borne out by statistics from jurisdictions that have implemented fire sprinkler legislation such as Vancouver and Scottsdale. A 2003 NFPA study, cited earlier in this report determined that homes protected by fire sprinklers had 78 percent fewer fire deaths and 42 percent less property damage.
Fire sprinklers are not intended to be a panacea. Fire sprinklers are not a substitute for, but an important addition to, smoke alarms, fire prevention, quick and effective firefighter response as well as the other components of the comprehensive model.
The OFS agrees that fire sprinklers are not an inexpensive option, costing approximately $3,000 to $4,000 for a smaller 1,500 square foot home (2,000 square feet sprinklered area including basement) with per square foot costs decreasing with larger occupancies.
The Province has recently amended the Ontario Building Code to mandate residential sprinkler installation in the construction of new condominiums and apartments four-storeys or higher with the regulations scheduled to take effect on April 1, 2010.
In principle, the OFS would advocate for the installation of fire sprinklers in all residential occupancies, but it is reasonable that the province first introduced mandatory regulations for larger multi-tenant occupancies, which will have the highest benefit/cost to the community.
In keeping with a progressive, incremental approach to fire safety, the OFS would recommend that the Province be encouraged to expand the mandatory regulations to include residential properties three storeys or less, using a phased approach, until all residential occupancies are protected.
The OFS would further recommend that the City of Ottawa endorse Bill 72, the Municipal Residential Sprinkler Act, 2008, which has received second reading, that would authorize municipalities to pass by-laws requiring the installation of fire sprinkler systems in new residential buildings, including low-rise and single family dwellings.
Subject to approval of the Bill, the City would consult with the Greater Ottawa Home Builders’ Association (GOHBA) and the wider community to propose a regulation that best meets the needs of the City of Ottawa within the context of the City’s fire risk. Depending on the status of changes to the building code implemented by the province, the City may or may not choose to enact a City of Ottawa by-law, but successful passage of the bill will provide the City with the authority to regulate as it deems appropriate.
The OFS agrees with GOHBA’s proposal that homebuilders be encouraged to offer sprinkler systems as options in new home construction. Prospective home owners may well be willing to absorb a cost of $3,000 to $4,000 to benefit from the added fire protection afforded by a fire sprinkler system. Being offered the option will raise awareness of the availability of the technology and its benefits.
Finally, the OFS proposes that the senior levels of government be requested to implement incentive (rebate) programs, similar to ecoENERGY Retrofit program that provides grants to homeowners who invest in energy-efficiency upgrades, to encourage homebuilders and homeowners to enhance the safety of their properties through the installation of fire sprinklers.
CONSULTATION
Ottawa Fire Services consulted the main construction companies and homebuilders in the Ottawa area regarding this issue. All the builders indicated that they would support the official opinion of the Greater Ottawa Home Builder’s Association (GOHBA).
The GOHBA provided a position paper (attached as Document 2) respecting its opposition to mandatory residential fire sprinklers and the main arguments put forward by the association have been included in the body of this report.
Among its arguments, the paper
suggests that the cost benefits of installing working smoke alarms outweigh the
installation of sprinklers in new homes, but encourages all homebuilders to
offer sprinkler systems as an option in new housing construction.
Building Code Services
Building Code Services supports an incremental approach to introducing new regulations and standards, as this will ensure success in the implementation of the new standards and a higher degree of compliance.
The industry requires time to develop the expertise to design and install new systems, the public requires time to understand the benefits of these new systems despite related installation costs and the costs for the maintenance and operation of these, etc. Finally, staff require time to assimilate the technical information and standards and integrate the review and inspection of these installations into the inspection program.
In addition, the Branch would
prefer that the new standards be introduced into the Building Code to ensure
clarity and consistency province-wide.
FINANCIAL IMPLICATIONS
There are no financial implications associated with this report.
LEGAL/RISK MANAGEMENT IMPLICATIONS
There are no legal/risk implications associated with this report.
SUPPORTING DOCUMENTATION
Document 1 – Briefing Package – Bill 72 – Municipal By-law Re., Residential Fire Sprinklers
Document 2 – Position Paper by the Greater Ottawa Home Builders’ Association
Document 3 – CMHC - Research Highlight – Fire Experience, Smoke Alarms and Sprinklers in Canadian Houses: CMHC Research to 2005.
DISPOSITION
The City Operations Department will implement any direction received from Committee and Council.
Document 1
Bill 72
The Municipal Residential Sprinkler Act,
2008.
Briefing Package
Linda Jeffrey MPP Brampton Springdale
380 Bovaird Drive, Unit 13
Brampton, ON, L6Z 2S7
Tel: (905) 495-8030
Fax: (905) 495-1041
Bill 72, Municipal
Residential Sprinkler Act, 2008,
EXPLANATORY NOTE
The Bill amends the Building Code Act, 1992, the City of Toronto Act, 2006 and the Municipal Act, 2001 to authorize municipalities to pass by-laws requiring the installation of fire sprinkler systems in new residential buildings. The chief building official shall refuse to issue a building permit if a proposed building does not comply with such a by-law.
The by-laws, which may be passed with respect to residential buildings for which building permit applications are made on or after September 1, 2009, prevail over any Act or regulation.
Sprinkler systems that are required to be installed by the by-laws must comply with standards specified in the building code.
Facts about sprinklers:
Fire Sprinklers are simple devices that are individually operated directly by the heat from a fire. Unlike what the movies depict, the entire system does not activate simultaneously.
When a fire starts, a plume of hot gases rise to the ceiling. If a sprinkler is present, a glass bulb or solder link gets hot and at a specific temperature (typically 165°F) breaks releasing a cap and allowing water to flow onto a specially designed diffuser.
The diffuser breaks up the water flow into carefully controlled droplets, which penetrate the fire plume and cool the burning material below its ignition point, thus putting out the fire.
Only the sprinkler(s) directly over the fire are activated.
The sprinklers are connected to pipes, usually filled with water, which is supplied either from the water mains or from a storage tank via a pump.
The flow of water is small, usually less than 1/10th the water used by the Fire Department, at a much less pressure, thereby decreasing water damage.
Sprinklers do not go off accidentally and are only triggered by real fires.
Sprinklers are very reliable and only 1 in 16 million will exhibit any form of manufacturing defect.
There are more than 220 jurisdictions in North America that require residential sprinklers in homes, sadly to say, none in Ontario.
Households with non-working smoke alarms now outnumber those with no smoke alarm and smoke alarms fail most often because of missing, disconnected or dead batteries.
There has never been a fatality due to fire in a home that has properly installed and functional fire sprinkler.
Vancouver is the first large North American Municipality with a population over 500,000 to have no accidental fire deaths in 1998. Since sprinklers became mandatory in Vancouver, the city has experienced no accidental fire deaths in a home protected by properly installed and functioning sprinklers.
Questions and Answers
How do sprinklers operate?
Fire
sprinklers are individually heat-activated and connected to a network of water
pipes. When the heat from a fire raises the sprinkler to its operating
temperature (usually 165°F), only that sprinkler activates delivering water
directly to the source of the heat.
How reliable are sprinklers?
Records
show that in home fires where fire sprinklers were installed, sprinklers
controlled 99.7% of these fires.
Why are sprinklers so effective?
All
fires start small and, if detected and tackled early enough, can be controlled
with very little water. The latest sprinkler systems use a special type of fast
response fire sprinkler, which responds very quickly to a fire and is
completely automatic in operation. The system can therefore tackle a fire at a
very early stage, even if no one is around, releasing water directly over the
source of the fire and sounding an alarm.
Do sprinklers go off accidentally?
The
odds of a sprinkler going off by accident because of a manufacturing defect are
1 in 16 million. You have a better chance of being hit by lightning than for a
properly installed residential fire sprinkler to go off by accident.
Do insurance companies give discounts for
sprinklers?
In
areas like Vancouver, B.C., many insurance companies did reduce insurance
premiums by about 5 - 10% for houses that installed fire sprinklers. Right now,
State Farm insurance gives routine discounts in Ontario for homes with fire
sprinklers.
The
10-year evaluation of the Scottsdale (Arizona) fire department shows that smoke
and water damage is around nine times less in homes that are protected by
sprinklers.
The
reason is that sprinklers operate before a fire can do much damage and use
one-tenth the amount of water used by fire department hoses.
Won't they all go off together?
No, each sprinkler reacts individually to
a fire, so only the sprinkler nearest the fire will open. If that is not
sufficient to control the fire then the next nearest will open, and so on. In
over 95% of cases only one sprinkler operates and this is enough to control or
extinguish the fire.
What about water damage?
One of the myths about sprinklers is that they will cause significant water damage. While this may seem logical (after all, they spray water), fire records show that the reverse is actually true. Here is why:
A residential fire sprinkler
typically discharges less than 20 gallons per minute.
A firefighter’s hose line on the other hand discharges more than 200 gallons a
minute. In general a sprinkler system will use between 1/10th and 1/100th of
the water used by the Fire Department. Even then, most things that get wet can
be restored.
If sprinklers are not present, fires typically burn for an additional 10-15 minutes until firefighters arrive and begin spraying it with their hoses. Two things happen to cause more damage than sprinklers. First, more of your possessions have burned up before
Firefighters have the opportunity to intervene. Second, you will have 10 times more water being sprayed on what is left at a very high pressure.
The combination of the sprinkler's quick response, the smaller water flow and lower pressure will significantly reduce water and property damage.
Without sprinklers, the heat and smoke from a fire travel very quickly, damaging the furniture and possessions throughout the house. With sprinklers, the sprinkler nearest the fire will stop it before it can develop the damaging heat and smoke.
Can I install them myself?
No.
Only qualified and experienced contractors should install fire sprinklers. They
will know how to design and install the system in compliance with national
standards, which will ensure that the spacing is correct and the water supply
adequate. Also, fire sprinklers have different operating temperatures and flow
patterns. You need someone knowledgeable who can select the correct sprinkler
for each area of your home.
Do sprinklers create and
harbour mould?
No, any water pipe that leaks,
or upon which moisture is allowed to condense and stand for extended periods of
time, is susceptible to mould. Small leaks under sinks or bathroom appliances
are ideal harbours for mould, as are damp areas in basements. Water lines
whether supply or drain, will not harbour mould when properly installed and
maintained.
Homeowners are much more likely to have problems with mould due to flush toilets than from sprinklers.
Will fire sprinklers leak?
No, sprinklers and their piping are pressure-tested at two to three times higher than your plumbing system, even though they use the same pressure as your plumbing. Therefore, the chance of a leaking sprinkler is practically non-existent. Like your plumbing pipes, sprinkler pipes are not exposed to cold areas so they are protected from freezing. They do not leak because, unlike faucets and other fixtures that are operated often throughout their lives, fire sprinklers remain closed until needed and thus do not receive the wear and tear of daily use.
