Emergency management programs

Ontario requires designated provincial government bodies (e.g. ministries) and municipalities to develop, implement, and maintain emergency management programs and adopt standards for these programs through legislation and regulation. These mandatory requirements ensure that a consistent, accountable, and robust system of emergency management is established across all jurisdictions throughout the province.

Legislation and regulations

The primary authorities that establish the requirements of an emergency management program are:

• EMCPA, R.S.O. 1990, c. E.9
• O. Reg. 380/04
• Order in Council 1157/2009

Emergency Management and Civil Protection Act

In Ontario, the EMCPA establishes the province's legal basis and framework for managing those emergencies falling within the public order and public welfare spheres. It does this by defining the authority, responsibilities, and safeguards accorded to provincial ministries, municipalities, and to specific individual appointments (such as the Premier, commissioner of emergency management, and the chief of Emergency Management Ontario).

Key provisions in the act provide for^{footnote 4[4]}:

• The definition of 'emergency' and 'emergency management program'.
• The requirement that municipalities and provincial ministries develop and implement an emergency management program. In developing their emergency management programs, municipalities and ministries must conduct a hazard identification and risk assessment process and they must identify elements of infrastructure to be protected.
• The assignment of responsibility for a specific type of emergency and/or emergency services to a ministry by the Lieutenant Governor in-Council (LGIC). This is done by Order in-Council.
• The authority for the head of council of a municipality to declare that an emergency exists in the municipality, to take any necessary action not contrary to law, and to implement the emergency response plan of the municipality.
• The authority for the premier of Ontario to declare that an emergency exists in any part of Ontario, to take any necessary action not contrary to law, and to implement any of the province's emergency response plans. The Premier also has the authority to terminate both provincial and municipal emergency declarations.
• The authority of the LGIC to declare emergencies and make broader emergency orders and the authority to delegate order-making authority to a minister of the Crown or the commissioner of Emergency Management.
• The establishment of criteria for declaring provincial emergencies.
• The appointment of a chief, Emergency Management Ontario to be responsible for monitoring, coordinating and assisting in the promotion, development, implementation and maintenance of emergency management programs throughout Ontario. The chief of Emergency Management Ontario is also responsible for ensuring that these programs are coordinated as far as possible with the programs of the Government of Canada.
• The requirement that the LGIC formulate emergency plans for nuclear facilities.
• The authority for the Solicitor General, to make regulations that set standards for the development and implementation of emergency management programs.

Ontario Regulation 380/04 (O. Reg. 380/04)

Ontario Regulation 380/04 (O. Reg. 380/04) under the EMCPA sets out the required elements of an emergency management program for both provincial ministries and municipalities. The EMCPA authorizes the Solicitor General to enact regulations that set standards for the development, implementation and maintenance of emergency management programs required by municipalities and provincial ministries.

Under the EMCPA and O. Reg. 380/04, an emergency management program must:

• Designate an emergency management program co-ordinator and alternate
• Complete training for the emergency management program coordinator
• Establish and conduct training for the Ministry Action Group and the Municipal Emergency Control Group
• Conduct an annual exercise for the Ministry Action Group / Municipal Emergency Control Group
• Establish an emergency management program committee
• Designate an emergency information officer
• Establish an Emergency Operations Centre
• Ensure 24/7 notification arrangements
• Identify and assess hazards and risks
• Identify important infrastructure
• Conduct public education
• Formulate an emergency plan
• Revise the emergency plan
• Conduct an annual review of the ministry/municipal emergency management program

Additionally, ministry emergency management programs must include:

• Continuity of Operations Plan

The legislation and regulation places the accountability for emergency management programs with the municipal head of council and ministers. The legislation and regulation do not govern the approaches on how these are achieved, leaving flexibility for how the various elements within their emergency management program will be implemented.

Order in Council 1157/2009

The assignment of a special area of (emergency) responsibility to a provincial minister is issued through an Order in Council. Under Order in Council 1157/2009 (OIC 1157/2009), select ministers of the Crown have been assigned responsibility for the preparation of emergency management programs and plans for a specific type of emergency and/or specific emergency services^{footnote 5[5]}. These responsibilities are in addition to the EMCPA and O. Reg. 380/04.

Supporting legislation and programs

While the core emergency management programs are mandated under the EMCPA, regulation and OIC, there are other related provisions that are undertaken that complement the core emergency management programs and make emergency management in Ontario more comprehensive. The province has put into effect other legislation and has developed various emergency management-related programs and activities as described below, to provide direction, support and guidance to jurisdictions and stakeholders across the province.

Planning Act

The Ontario Planning Act, R.S.O. 1990, c. P.13 is the primary law governing land use planning in Ontario. The legislation grants municipal governments authority to control the use of privately-owned lands through a range of planning tools. At the same time, the Planning Act is intended to establish a land use planning system that is led by provincial policy, and to integrate matters of provincial interest in provincial and municipal planning decisions. The Planning Act allows the Minister of Municipal Affairs and Housing to issue policy statements, approved by the provincial Cabinet. The Ontario Provincial Policy Statement 3.1.1 states that development shall generally be directed to areas outside of lands impacted by certain natural hazards. This act is key to the emergency management program components of prevention and mitigation.

Forest Fire Prevention Act

Ontario mitigates the dangers of forest fires through the Forest Fire Prevention Act, R.S.O. 1990, c. F.24 which is administered by Ontario's Ministry of Natural Resources and Forestry. In addition to setting out rules on where and when people can start fires, the act grants broad enforcement powers to conservation officers, police officers and fire wardens in preventing, containing and controlling forest fires. This act is key to the emergency management program components of prevention and mitigation.

Ontario Critical Infrastructure Assurance Program

Ontario's Critical Infrastructure Assurance Program (OCIAP) is a province-wide initiative, that identifies and assess Ontario's key facilities, systems and networks, and their interdependencies, and promote processes to reduce risks from physical and cyber threats and other vulnerabilities.^{footnote 6[6]}

The Program defines critical infrastructure as interdependent, interactive, interconnected networks of institutions, services, systems and processes that meet vital human needs, sustain the economy, protect public safety and security, and maintain continuity of and confidence in government. The Program goes on to define critical infrastructure assurance as the application of risk management and business continuity management processes and techniques for the purpose of reducing the vulnerabilities of critical infrastructure in both the physical and cyber realms by decreasing the frequency, duration and scope of disruptions and facilitating response and recovery.

As of 2021, the OCIAP is being reviewed to ensure its mandate and structure are in alignment with lessons identified from recent emergencies and incidents. Currently, the program addresses critical infrastructures through nine sectors:

• Public safety and security
• Continuity of government
• Food and water
• Telecommunication systems
• Electrical power system
• Gas and oil
• Financial services
• Health System
• Transportation networks

Recently, critical manufacturing was added as an ad hoc tenth sector.

Training program

Emergency Management Ontario develops and supports the coordination and delivery of training to increase awareness and applied knowledge of emergency management practices and principles across Ontario. This program includes emergency management training targeted to municipal and ministry emergency management practitioners and seeks to maintain instructor standards across the province.

Incident Management System

Consistent with international best practices, Ontario's Incident Management System is a standardized approach to emergency management response which enables personnel, facilities, equipment, procedures, and communications to operate within a common organizational structure^{footnote 7[7]}. IMS improves the effectiveness of incident response by helping organizations and jurisdictions to collaborate. IMS can also be cost effective by avoiding the duplication of efforts and resources.

IMS recognizes that in any incident, there are certain response functions that must be carried out, regardless of the number of persons involved, or the size and scope of an incident. These six main functions include: Command, Operations, Planning, Logistics, Finance and Administration, and Public Information. Several other incident-dependent functions are also recognized.

The use and adoption of IMS are recommended to all emergency management partners and stakeholders. IMS is a best practice for effective emergency response. The province provides guidance and resources to assist stakeholders in implementing IMS within their jurisdictions and organizations.

Provincial Emergency Operations Centre

PEOC is a facility that is always managed by a team of dedicated staff. The key functions of the PEOC are to continually monitor evolving situations inside and outside of Ontario, provide relevant situational awareness information, accommodate various response partners (physically and virtually), and offer the mechanisms for a provincial incident management team to coordinate the response to emergencies that require provincial assistance.

These arrangements ensure that key decision-makers and provincial resources can respond to evolving situations as quickly as possible.

PEOC procedures include providing Ontario municipalities and First Nation communities with a single point of contact for provincial assistance during emergencies. Emergency Management Ontario, through the PEOC, is directly supported by provincial ministries and other emergency responders who have various roles to play. The management of and response to emergencies is directed by the ministry with the lead responsibilities for specific hazards/services/emergencies. The lead ministry may operate from the PEOC or its own EOC.

During large-scale emergencies, the Premier or LGIC may declare a provincial emergency. If the province requires specialized or large-scale assistance from the federal government, it will often be requested and coordinated through the PEOC.

Hazard Identification and Risk Assessment

Completing a hazard identification and risk assessment (HIRA) is a critical part of every emergency management program in Ontario, and is a requirement under the EMCPA. A HIRA assesses the potential risk of hazards with the capacity to cause an emergency. This helps set priorities for prevention, mitigation, preparedness, response, and recovery activities.

Ontario's HIRA report provides a comprehensive overview of hazard information relevant to Ontario and provides a baseline and common understanding of hazards. The HIRA methodology is also intended to provide guidance to emergency management coordinators and stakeholders on the process of completing a HIRA.^{footnote 8[8]}

Public education program

Emergency Management Ontario works with partners and stakeholders to develop public education products and tools for use by emergency management organizations in Ontario. Municipalities, provincial ministries, organizations, businesses and schools may use these products to support and promote their respective emergency management programs. Emergency Management Ontario also organizes and promotes public awareness events to foster and promote a culture of preparedness for all Ontario residents. Public education and public preparedness are requirements under the legislated emergency management programs

Emergency alert system

Alert Ready in Ontario is part of a national service designed to deliver critical and potentially life-saving emergency alert messages to Canadians. Emergency alerts are distributed through radio, television, and compatible wireless devices to help ensure that Ontarians have the critical information they need in emergencies to take necessary precautions to protect themselves and their families.^{footnote 9[9]}

Municipal Disaster Recovery Assistance

The Municipal Disaster Recovery Assistance (MDRA) is a provincial program that provides financial assistance to help Ontario municipalities recover from natural disasters. When activated by the province, the claims-based program offers financial assistance to qualifying municipalities that have sustained significant costs as a result of a natural disaster, such as a tornado or severe flooding.^{footnote 10[10]}

Disaster Recovery Assistance for Ontarians

The Disaster Recovery Assistance for Ontarians (DRAO) is a provincial program designed to help Ontarians recover costs after a natural disaster. The program may be activated for damage to private property when there is a sudden, unexpected natural event, such as a flood or tornado that caused costly and widespread damage within an area. DRAO provides financial assistance to individuals, small owner-operated businesses, farmers and not-for-profit organizations. It helps cover emergency expenses, repairs, or replacement of essential property after a natural disaster.^{footnote 11[11]}

Northern Emergency Management Assistance Compact

The Ontario government has signed on to the Northern Emergency Management Assistance Compact (NEMAC). Provinces and Americanstates that have signed the NEMAC have entered into a memorandum of agreement to facilitate cross-border emergency management assistance through mutual aid.

The agreement can be used for any capability and capacity that one member state or province has that can be shared with another. This spans from natural disasters such as floods and tornados to human-caused emergencies such as chemical spills and terrorist events. The Agreement comprises specialized resources and assets that can be brought to bear on any given incident and encourages and allows for cooperative planning and exercises among participating states and provinces to ensure all parties are better prepared during emergencies.^{footnote 12[12]}

The agreement does not compel provinces or states to respond to requests for assistance but provides a legal framework to clarify issues around cost recovery, liability and workers compensation.

Emergency Management Mutual-Aid Arrangements

The Ontario government has signed on to an Interjurisdictional Emergency Management Assistance Memorandum of Understanding (MOU) through the Canadian Council of Emergency Management Organizations. The purpose of this MOU is to promote and facilitate emergency management assistance between provinces and territories, before, during and after a major event. The MOU is supported by standard operating procedures which outline the process of requesting and receiving assistance from other provinces and territories to adequately support emergency response efforts. The MOU and SOPs are collectively referred to as the Emergency Management Mutual-Aid Arrangements (EMMA).

Provincial and Ministry Plans

Legislation requires the LGIC to formulate an emergency plan with respect to emergencies that arise in connection with nuclear facilities; this is currently titled the Provincial Nuclear Emergency Response Plan. Legislation also authorizes the Solicitor General, if he or she thinks it is necessary or desirable in the interests of emergency management and public safety, to formulate certain other emergency plans. Examples include the Provincial Emergency Information Plan and a Mass Evacuation Plan. Additionally, Order in Council 1157/2009 assigns responsibilities to select ministries to develop response plans for specific types of emergencies. One of the plans assigned by this order is specifically required to address any emergency that requires the coordination of provincial emergency management; this is currently titled the Provincial Emergency Response Plan.

Brief overviews of select plans follow.

Provincial Emergency Response Plan

The Provincial Emergency Response Plan describes the arrangements and measures that may be taken to safeguard the health, safety, welfare and property of the people of Ontario affected by an emergency. It sets out the basic mechanisms, organizational structures, responsibilities, and procedures to guide ministers and their staff when involved in a coordinated provincial response to emergencies in Ontario. It also serves as the foundation for the development and coordination of provincial plans with municipalities, First Nation communities in Ontario, and the Government of Canada and its agencies.^{footnote 13[13]}

Provincial Nuclear Emergency Response Plan

The Provincial Nuclear Emergency Response Plan establishes a framework for the response to nuclear emergencies arising at nuclear reactor facilities as well as for radiological emergencies (e.g. transportation accidents involving radiological substances, radiological dispersal devices or terrorist-related activities). While the likelihood of a serious accident in a reactor facility remains low, the province is prepared to respond to those occurring both provincially and internationally^{footnote 14[14]}. Ontario's response to a nuclear incident is developed in accordance with Section 8 of the EMCPA.

Provincial Emergency Information Plan

The Provincial Emergency Information Plan (PEIP) is necessary to ensure that during an emergency, prompt and coordinated information from the Ontario government is shared with the public, media, members of the provincial parliament, partners and stakeholders. During an emergency, the province will release information needed to protect the health, well-being, safety and property of Ontarians. The PEIP clarifies the role of provincial ministries and determines when emergency information activities should be centralized and coordinated by the Provincial Emergency Information Section. It also outlines provincial emergency information resources and support that may be available to municipalities.^{footnote 15[15]}

Evacuation plans

• Ontario's Mass Evacuation Plan Part 1: Far North guides the planning and implementation of evacuations from the activation phase through demobilization and outlines the roles and responsibilities of the various partners who assist in evacuation operations.^{footnote 16[16]}
• The Guideline for the Development of the Municipal Evacuation Plan is an annex to the Ontario Mass Evacuation Plan. The purpose of this guideline is to aid municipalities in preparing an evacuation plan. The guideline presents evacuation planning concepts that may be applied for various scales of evacuations and municipality sizes.

National and international program standards

Beyond legislated/regulated standards, and internally produced plans, guidelines and best practices, Ontario monitors and engages with other organizations that produce emergency management standards. Some notable examples that are widely endorsed and provide key guidelines, best practices and applicable standards for emergency management programs at any level include:

• Canadian Standards Association (CSA): Z1600 Standard on Emergency and Continuity Management
• CSA N1600-16 General Requirements for Nuclear Emergency Management Programs
• National Fire Protection Association (NFPA): 1600 Standard on Continuity, Emergency and Crisis Management
• International Organization for Standardization (IS0)
  • ISO 22320: Emergency Management - Guidelines for Incident Management
  • ISO 22301: Business Continuity Management Systems
  • ISO 22326: Emergency management - Guidelines for monitoring of facilities with identified hazards