The original Police Fire Ambulance (PFA) radio trial project began in Richmond, British Columbia, in 2003, as a result of a review which uncovered a lack of inter-agency communication. While updating all of its emergency plans for the community, the Steering Committee found that although the British Columbia Ambulance Serivce (BCAS), the Royal Canadian Mounted Police (RCMP), and Richmond Fire Rescue (RFR) were all using the E-Comm radio Wide Area Radio (WAR) system, it was noted that the system was not being used to its full capability as none of the agencies were communicating directly with each other at the responder level.

The E-Comm WAR system, an advanced digital-capable radio network, was designed to allow local emergency responders to communicate with each other and with their counterparts in other communities also on the E-Comm system. It was designed to be used on a day-to-day basis as well when responding to major emergencies or disasters. The interoperable abilities of the radio system were developed, in part, in response to communication breakdowns during the Robson Street Riot in Vancouver, British Columbia in 1994. 

The system had been used during several large incidents and pre-planned events in the E-Comm area in the past. However, until the City of Richmond (COR) recognized the need for a better communication procedure, no community had been routinely using the radios and the system to their full capabilities – a key to making sure communications are effective during any crisis. It was also noted that prior to this project most responders didn’t know how to change radio channels, what the PFA channels were for, or how to unlock their radios! 

History has demonstrated over and over again, the need for such a joint communication system. The main issue in many postmortems of major events turns out to be the lack of communication. We don’t have to look back that far to see many examples of this. The events of September 11, 2001 and the tragic shootings at Columbine High School in Littleton, Colorado are two examples demonstrating that effective communication among responding agencies is essential to reducing loss of life during major incidents.

The 9/11 Report noted that on September 11, 2001, “The biggest challenge for FDNY was the lack of communication. Even before the collapse, the analog radios they used and distributed to the voluntary hospital units didn’t work within the solid steel structure and concrete walls of the Twin Towers. In addition, the huge volume of radio traffic rendered most communication unintelligible… In addition the 9/11 Report found that a lack of unified command and integrated communication between FDNY and NYPD stymied operational efforts. Critical information was not shared among agencies.”[1]

Ironically, just as the COR was concluding their pilot project and implementing the current procedures, a report commissioned by the Federal Government determined that, “…chronic deficiencies in the radios used by Canadian police, firefighters and ambulance paramedics are creating a dangerous lack of communication that could cost lives and hamper rescue efforts during a major disaster or terrorist threat.”

That all changed with the pilot project undertaken jointly by BCAS, RCMP, RFR, Richmond’s Emergency Management Office, and E-Comm. The pilot project provided a chance for all the responding agencies in Richmond to use inter-agency radio communication as part of routine operations. This required the development of common communication protocols and the breaking down of traditional barriers between responder agencies. A key objective was to ensure that all first responder agencies were experienced with the new protocols so that during a disaster they would be able to communicate effectively between agencies. 

Not only did this initiative join together the three separate agencies in Richmond for the pilot project, the project was able to overcome political hurdles. It managed to link a federal police force, a provincial ambulance service, and a city-based fire department, all of which work separate from each other, using different procedures, terminology, and in the past, having used different technology. This project not only greatly improved emergency responses and care to the citizens of Richmond, but it finally provided one of the most important safety tools to emergency responders, direct communication.

During the first stages of this project, it was apparent that the pros outweighed the cons by a long shot. Allowing responders to communicate directly ensured that information was being passed on clearly and immediately. Prior to this system being implemented, it would take a minimum of four people to pass a message on. The Responder had to advise his or her Dispatcher, who then had to contact the other agency’s Dispatcher, who in turn had to then pass the information on to their responders. It also took varied time frames to get the message through based on what the information was, it’s importance, and the work load of the Dispatchers at the time the information was being passed on. It was felt this time delay was unacceptable and the potential for miscommunication was too great. Now information about the call, and more importantly, safety issues, would go directly to those involved.

In light of the successes of the initial trial and the subsequent day to day local operational implementation, the project will soon be expanding around the Lower Mainland. Currently, there are a number of communities around the Lower Mainland that wish to move forward with this initiative. As the one common agency in every community in the Province, the BCAS is playing a major role with this expansion. 

Pascal Rodier
Paramedic Chief
Pascal.Rodier@gov.bc.ca

"Emergencies Bring Agencies Together...Combined Events Bring Responders Together"
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[1] JEMS Sept. 2006,Vol.31, No.9, - Lessons Learned From 9/11 T. McCallion and A.J. Heightman