Executive summary
Two devastating fires that took place in 2016 in Pikangikum First Nation and Oneida Nation of the Thames led to calls for the Office of the Chief Coroner for Ontario to review fire deaths that have occurred in First Nations communities. These tragic deaths were not isolated. In response to multiple fire related deaths in many First Nation communities, First Nation Chiefs and community members were calling for an inquest to explore potential systemic issues contributing to ongoing fire related deaths. The Ontario Chief Coroner’s Table on Understanding Fire Deaths in First Nations (OCC-UFDFN) was assembled to collect data and information to effectively inform the understanding of fire deaths in First Nations communities. The OCC-UFDFN included a core group that formed the main governance team, a Working Group of technical experts and an Advisory Group of Elders and Knowledge Keepers. The Advisory Group guided the Working Group to ensure that the review was carried out respectfully and in a manner that reflected the voices and perspectives of First Nations communities.
The “First Nations Fire Template” (FNFT) was developed to capture data that informed the analysis of information contained in this report. The FNFT is a tool that can allow for the sharing of information from fire death investigations and can assist in the evaluation and comparison of fire fatalities in First Nations communities.
Findings that were individually made during each fire investigation were combined as part of the review to describe the fires, structures and individuals impacted as well as potential relationships between these factors. Grouping of the data allowed analysis and inability to identify individuals who tragically died. The findings were compared to information from the Ontario Fire Marshal for fatal fires in non-First Nations communities in Ontario during the same time period when possible.
The OCC-UFDFN examined fire deaths in First Nations communities in Ontario over a ten-year period, spanning from 2008 to 2017. This review identified 56 deaths in 29 fires that occurred in 20 First Nations communities across Ontario. Communities where the fatal fires occurred ranged in population size from 30 to 12,750, with the majority having less than 1,000 people living in the community. Communities with no year-round road access had the highest number of fatal fires as well as the highest number of fire fatalities.
Previous research into fire fatalities found those at greatest risk to be children and older adults. This review found that First Nations children ages 0-9 had the highest fire-related mortality rate (86 times greater than non-First Nations children in Ontario).
Seventy percent of fire fatalities in First Nations communities occurred in colder months and 70% occurred overnight. This pattern is consistent with fire fatalities in non-First Nations communities in Ontario and other populations previously reviewed. However, there were a few months that did not follow the overall pattern. A further examination of what may be occurring during these months should be considered.
Most (86%) fatal fires in First Nations communities had either no or non-operational smoke alarms in the homes/structures (or the presence of the smoke alarms was unknown). Smoke alarms alert house occupants to smoke allowing early detection and more opportunity for escape. Smoke alarms are one of a number of safety planning approaches important in preventing fire deaths. Education and prevention key elements in reducing fire fatalities.
Compared to non-First Nations communities in Ontario, more fatal fire investigations report the cause as undetermined in First Nations communities. This is likely due to the higher levels of structural damage seen in fatal fires in First Nations communities, especially those in remote areas where there is limited or no fire suppression capability. Cooking stoves and heating sources (wood stove, chimney/fire place) were the most common way a fire started when the cause was known.
This review identified differences in the most common building materials and heating sources used in homes and structures in First Nations communities. Specific construction materials may affect flammability and fire spread in structures. OFM will be conducting further research on structural elements of fatal fires.
Emergency response and fire suppression on their own have a limited impact on survival which makes early detection and escape paramount. In some communities there were no fire services available to respond to a fire. It is important to consider the funding and resources required for First Nations communities to ensure that training and education occurs and is tailored to the communities’ needs and realities.
The review was focused on factors affecting fire fatalities. However, there may also be other factors that impact individual communities differently due to the unique realities of each. The impact of socioeconomic factors may be an area to review in the future. There may also be value in examining and comparing the resources and realities of First Nations communities that experienced experiencing fatal fires to other First Nations communities in Ontario that did not experience fatal fires. A similar comparison could be done to non-First Nation communities.
The Advisory Group raised several issues and concerns about housing structures and funding. Important issues requiring further consideration in fire fatalities include:
- funding for structures
- allocation of funds to meet community needs
- role of fire and building codes
- status of structure maintenance
- jurisdictional issues and responsibilities
The aim of the OCC-UFDFN was to collect data and information to effectively inform the understanding of fire deaths in First Nations communities. The information that is provided cannot be meaningfully understood without considering the historical context and present day-realities of First Nations communities. The OCC-UFDFN shares this information to “advent change and provide a message about hope.”