Agenda Standing Policy Committee on Protection and Community Services November 4, 2013

REPORTS Item No. 1 Arson Reduction Strategy

WINNIPEG PUBLIC SERVICE RECOMMENDATION: 1. That the Standing Policy Committee on Protection and Community Services endorse the Arson Reduction 8-point Strategy: A. Public Service Announcements Ensure public service announcements addressing arson and fire prevention begin a heavy rotation in the March/April of every year to heighten awareness entering the summer season. Community Forums Plan Community Forums in problem neighborhoods in March/April of every year to heighten awareness entering the summer season. Youth Awareness School Education focus in at-risk neighbourhoods throughout the school year to heighten awareness entering the summer season. Solid Waste Scheduling Explore changes to the pick-up schedule to ensure at risk neighbourhoods do not have a Monday pick-up to avoid waste being left out over weekends when arson activity is highest. Bulk Waste Removal Enhanced pick-up of garbage and bulk waste in at-risk neighbourhoods from May to September. Bulk Waste Enforcement Enhanced enforcement action against garbage accumulation on properties including a crackdown on repeat offenders, gross neglect offenders, and offenders who fail to comply with a compliance order. Offender Intervention Monitoring repeat arson offenders and diverting them into more productive activity; monitoring repeat auto theft offenders has successfully been utilized to reduce auto theft offenses by half. Arson Data Collection & Analysis Develop a fire and arson analysis process.

B.

C.

D.

E.

F.

G.

H. 2.

That the Public Service be authorized to include an additional appropriation of $150,000 for the Tax-Supported Garbage Collection 2014 operating budget to enhance the Bulk Waste Removal in at-risk neighbourhoods from May to September.

Agenda Standing Policy Committee on Protection and Community Services November 4, 2013

DECISION MAKING HISTORY: STANDING COMMITTEE RECOMMENDATION: On October 3, 2013, the Standing Policy Committee on Protection and Community Services granted an extension of time of 30 days for the Winnipeg Public Service to report back on the matter.

STANDING COMMITEE DECISION: On June 6, 2013, the Standing Policy Committee on Protection and Community Services concurred in the recommendation of the Winnipeg Public Service and received as information the Winnipeg Public Service report. Further on June 6, 2013, the Standing Policy Committee on Protection and Community Services directed that the Winnipeg Public Service, with input from all stakeholders including the Fire Paramedic Service; Winnipeg Police Service; and Community Services Department, to develop a comprehensive long term strategy to address arson, for report back at its October 3, 2013 meeting.

ADMINISTRATIVE REPORT
Title: Critical Path: Arson Reduction Strategy Standing Policy Committee on Protection and Community Services

AUTHORIZATION
Author Department Head Chief D. Clunis D. Sacher Acting-Chief WFPS B. Clark C. Wightman CFO M. Ruta CFO CAO

Supt. D. Smyth

D. Joshi, A-CAO

RECOMMENDATIONS
1. That the Standing Policy Committee on Protection and Community Services endorse the Arson Reduction 8-point Strategy: Public Service Announcements - Ensure public service announcements addressing arson and fire prevention begin a heavy rotation in the March/April of every year to heighten awareness entering the summer season. Community Forums - Plan Community Forums in problem neighborhoods in March/April of every year to heighten awareness entering the summer season. Youth Awareness - School Education focus in at-risk neighbourhoods throughout the school year to heighten awareness entering the summer season. Solid Waste Scheduling - Explore changes to the pick-up schedule to ensure at risk neighbourhoods do not have a Monday pick-up to avoid waste being left out over weekends when arson activity is highest. Bulk Waste Removal - Enhanced pick-up of garbage and bulk waste in at-risk neighbourhoods from May to September. Bulk Waste Enforcement - Enhanced enforcement action against garbage accumulation on properties including a crackdown on repeat offenders, gross neglect offenders, and offenders who fail to comply with a compliance order. Offender Intervention Monitoring repeat arson offenders and diverting them into more productive activity; monitoring repeat auto theft offenders has successfully been utilized to reduce auto theft offenses by half.

 Arson Data Collection & Analysis - Develop a fire and arson analysis process. 2. That the Public Service be authorized to include an additional appropriation of $150,000 for the Tax-Supported Garbage Collection 2014 operating budget to enhance the Bulk Waste Removal in at-risk neighbourhoods from May to September.

REASON FOR THE REPORT

In June, 2013,the Standing Policy Committee on Protection and Community Services directed that the Winnipeg Public Service, with input from all stakeholders including the Fire Paramedic Service; Winnipeg Police Service; and Community Services Department, be directed to develop a comprehensive long term strategy to address arson, for report back at its October 3, 2013 meeting.

IMPLICATIONS OF THE RECOMMENDATIONS

Significant financial implications are associated to strategy points 4 and 5 for the Water and Waste Department to enhance services to address the arson problems identified in the report.

HISTORY
Introduction In June, 2013, the Standing Policy Committee on Protection and Community Services directed the Public Service to develop an arson strategy and report back to the committee in October, 2013. Consultation occurred between the Winnipeg Fire and Paramedic Service, Community Services, Public Works, Water and Waste, and the Winnipeg Police Service in preparation of this report. All of these departments engage in operations that impact arson activity directly and indirectly. Focusing resources on garbage and bulk waste fires is likely to have the biggest impact on reducing the number of arsons. This report will focus on four areas that can be enhanced: 1. 2. 3. 4. Fire Prevention Offender Intervention Arson Investigation Arson Data Collection and Analysis

Fire Prevention Fire prevention is a core function of the WFPS. In addition, Community Services and the Police Service also contribute to fire prevention initiatives. A significant number of fires involve garbage carts and bulk waste improperly disposed of by residents. In 2012, garbage bins and bulk waste accounted for 30% of all reported arsons. In 2013, garbage bins and bulk waste accounted for 60% of all reported arsons (this figure does not account for the 2013 4th quarter). This type of activity increases in the spring and summer. The reduction in these types of fires can be mitigated through awareness initiatives and enhanced waste removal.

General Public Awareness Public Service Announcements Ensure public service announcements addressing arson and fire prevention begin a heavy rotation in the March/April of every year to heighten awareness entering the summer season. Community Forums Plan Community Forums in neighborhoods with higher rates of bulky waste in March/April of every year to heighten awareness entering the summer season. Youth Awareness School Education focus in problem neighbourhoods throughout the school year to heighten awareness entering the summer season.

Garbage and Bulk Waste Removal The Water and Waste Department has demonstrated a key role within the arson strategy by enhancing bulk waste removal and garbage/recycling pick-up schedules. A large percentage of fires involve garbage bins/carts and bulk waste being deliberately set on fire. Garbage bins accounted for 20% of all reported arsons in 2012 and these were mostly in the old AutoBins. Bulk waste fires accounted for approximately 10% of all fires in 2012. Garbage carts accounted for 48 % of all fires in 2013 (as of the end of the 3rd quarter). Garbage cart fires have increased dramatically; this is due to the switch from AutoBins, which had approximately one container for every six homes and low recycling participation to the cart system where every dwelling has two containers. In most instances, this is a twelve-fold increase in the number of containers from 2012 to 2013. Bulk waste fires in 2013 are projected to be slightly higher at approximately 12% of all fires. These garbage cart and bulk waste fires are largely seen as a youth disorder type of arson activity that puts strain on City Emergency Services. The seriousness increases if this type of fire spreads to structures or vehicles. The Water and Waste Department piloted a bulk waste pick-up schedule that streamlined service in at risk neighbourhoods in June, July, part of August, and September. The enhanced service focused on bulk waste; it did not include garbage carts. The Water and Waste Department was picking up bulk waste twice a week in these neighbourhoods. Bulk waste was picked up even if the resident did not make a formal request through 311 Service. The Department experienced significant financial impact that was not budgeted for during the pilot initiative. Analysis after the pilot did not establish a correlation between the additional bulk waste pick-ups and the number of reported bulk waste fires. Removing bulk waste in a timely fashion is still considered important and will be recommended. The approach to bulk waste pick up in 2014 will be altered as follows: Many high risk neighbourhoods are scheduled for Monday garbage removal; bins are often full throughout the week-end when higher volumes of garbage fires are reported. Water and Waste will explore changes to the pick-up schedule to ensure at-risk neighbourhoods do not have a Monday pick-up.

 Enhanced pick-up of bulk waste in high risk neighbourhoods from May to September. This would not model the twice a week bulk pick-up piloted in 2013. Rather bulk waste pick-up would occur during the regular weekly pick-up, but would include collecting abandoned bulky waste items in neighbourhoods prone to arson activity. Additional bulk waste pick-ups could also be coordinated in some of the high risk neighbourhoods for limited periods in the spring and summer.

Garbage and Bulk Waste Enforcement Garbage adjacent to combustible materials such as fences and accessory structures are potential targets for arsonists. Community Services Departments Community By-Law Enforcement Services (CBES) Division conducts investigations for garbage accumulations and illegal dumping under the Neighbourhood Liveability By-law No.1/2008. Inspections are conducted proactively in higher risk neighbourhoods (i.e., yard- to- yard garbage inspection sweeps) and when receiving 311 service requests. These higher risk arson situations are now prioritized for investigation by CBES and furthermore, compliance order timeframes for them have been shortened to 2-4 days. Gross neglect offenders, repeat offenders, and offenders who fail to comply with a compliance order are issued common offence notices (i.e., tickets.). Furthermore, properties that are not cleaned-up are remediated by the Public Service with all costs of doing so applied to the property tax bill. CBES has implemented the following: Enhanced enforcement action against garbage accumulation on properties including a crackdown on repeat offenders, gross neglect offenders, and offenders who fail to comply with a compliance order. Enhanced proactive By-law Enforcement sweeps to reduce garbage accumulations and arson risk issues in targeted neighbourhoods in order to improve and maintain a high level of neighbourhood liveability standards. Enhanced partnerships with community organizations (i.e, community clean-ups and audits, intelligence, pride, promotions, etc.) in order to reduce garbage accumulations and illegal dumping.

Offender Intervention There are different types of fire setters involved in arson activity. Youth disorder accounts for the majority of bulk waste and garbage fire activity. Focusing resources on disorderly youth involved in this activity would help to address the problem. Monitoring Chronic Youth Many youths are arrested for arson activity typical in many at risk neighbourhoods. Monitoring repeat offenders and diverting them into more productive activity would be beneficial. Fire-Stop Programthis program is run by the WFPS but requires referrals from other agencies (police, courts).

 Review the program to determine if it is addressing the problem appropriately (is the material and method of delivery effective for disorderly youth). Ensure attempts are made to refer identified chronic youths into the program.

Investigation The Arson Strike Force Unit is comprised of members of the Winnipeg Police Service, the Winnipeg Fire Department, and the Office of the Fire Commissioner. The Unit was established in 1999 in response to growing concerns about arson activity in Winnipeg; the Unit has been dedicated to investigating arsons exclusively since that time.

Fires and Arson Investigation Protocol Fires that require an emergency response are typically received through a 911 operator. The Fire Department is dispatched to respond to the fire. The fire scene is managed by the Fire Department. The Winnipeg Fire Department Incident Chief is in command of all fire suppression operations. The Winnipeg Police Service is also dispatched to structural fires. Police provide support to the Fire Department. Victim services, traffic control, witness identification, and area security are general duties of the police. All structural fires are subject to a fire investigation to determine the fire origin. Origin and cause of fires is determined by Winnipeg Fire Department Investigators in conjunction with Investigators from the Office of the Fire Commissioner. Structural fires determined to be arsons, or suspicious in nature, are subject to a criminal investigation. The criminal investigation is conducted by members of the Winnipeg Police Service. All non-structural fires may be subject to a fire investigation at the discretion of the Fire Department Incident Commander.

General Action Arson Data Collection and Analysis Improvements in the way arson information is collected and closer coordination between WFPS and the WPS would help to identify the scale of the arson problem, and determine the best use of resources. Currently there in no agreed upon collection method. Very little analysis is conducted with the captured data. Consequently, the reporting of arson activity is inconsistent. Develop a fire and arson analysis process.

Conclusion Garbage and bulk waste fires account for the majority of arson activity in Winnipeg. Much of this activity has occurred in areas identified as high-risk neighbourhoods. A combination of fire prevention, offender intervention, and investigation tactics are likely to have the greatest impact on arson activity. In addition, establishing a better method of arson data collection and analysis will assist the public service to address arson activity more effectively in the future.

FINANCIAL IMPACT

Financial Impact Statement

Project Name: Arson Strategy
2014

Date:

October 15, 2013 2014

First Year of Program

2015 $ $ $ $

2016 $ $

2017 $ $

2018 -

Capital
Capital Expenditures Required Less: Existing Budgeted Costs Additional Capital Budget Required $ $

Funding Sources:
Debt - Internal Debt - External Grants (Enter Description Here) Reserves, Equity, Surplus Other - Enter Description Here Total Funding Total Additional Capital Budget Required Total Additional Debt Required $ $ $ $ $ -

$ $

Current Expenditures/Revenues
Direct Costs Less: Incremental Revenue/Recovery Net Cost/(Benefit) Less: Existing Budget Amounts Net Budget Adjustment Required $ $ $ 150,000 150,000 $ 150,000 $ $ $ $ $ $ $ -

Additional Comments: Enhanced collection in the at risk zones is expected to cost $150,000 and will require an additional appropriation for the Tax-Supported Garbage Collection operating budget. There is no financial impact associated with reviewing the feasibility of amending the collection schedule.

"Original Signed by Moira Geer" Moira Geer, Manager of Finance + Administration

CONSULTATION
In preparing this report there was consultation with: C. Wightman Director, Community Services P. de Graaf Manager, Community By-Law Enforcement B. Clark A/Chief, Winnipeg Fire & Paramedic Service P. Guyader D/Chief, Winnipeg Fire & Paramedic Service D. Sacher, Director, Water and Waste Department D. Drohomerski, Manager, Water and Waste Department S. Hart D/Chief, Winnipeg Police Service G. Perrier Inspector, Winnipeg Police Service

SUBMITTED BY
Winnipeg Police Service Prepared by: Superintendent D. Smyth Date: October 15, 2013

Appendix A

Appendix B Location Description 2011 Vehicle Garbage/Recycling-Bins RESIDENCE-Garage-Detached RESIDENCE-House RESIDENCE-Other Dumpster Garbage/Recycling-Bulk 2012 RESIDENCE-Garage-Detached Vehicle Garbage/Recycling-Bins Garbage/Recycling-Bulk RESIDENCE-House RESIDENCE-Apartment/Condo Suite RESIDENCE-Other 2013 Garbage/Recycling-Bins Vehicle Garbage/Recycling-Bulk RESIDENCE-Garage-Detached RESIDENCE-Other Dumpster RESIDENCE-House Grand Total Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 5 9 19 28 45 43 59 82 35 33 33 17 2 5 11 6 7 13 14 15 11 5 9 4 1 1 2 8 19 6 8 14 5 1 5 2 2 4 2 7 6 13 4 12 7 7 2 1 2 1 8 9 7 12 4 4 1 1 1 1 4 2 1 13 12 5 9 2 1 3 4 4 5 8 4 1 5 1 1 1 2 3 3 6 8 2 1 4 1 26 12 26 33 43 71 60 52 55 46 14 22 9 2 5 8 20 30 13 9 7 2 1 1 2 1 6 5 3 14 17 17 20 13 4 3 6 3 3 9 7 8 10 6 8 17 6 8 2 6 8 6 4 10 8 12 6 2 2 2 1 5 3 3 8 1 9 5 5 1 4 2 4 1 3 1 3 3 1 4 3 1 1 6 6 3 2 14 12 26 65 87 65 63 79 67 8 8 15 37 36 34 29 38 23 2 1 3 10 11 8 12 9 20 3 3 8 19 8 9 12 13 2 1 3 7 6 5 8 1 9 6 1 3 5 1 2 1 3 5 5 4 2 6 2 3 2 4 2 45 33 71 126 175 179 182 213 157 79 47 39 Grand Total 408 102 72 64 52 51 35 32 460 107 105 91 66 47 22 22 478 228 76 75 32 25 21 21 1346