Ontario Region Emergency Management Plan

Table of contents

Introduction

The Indigenous Services Canada (ISC) Regional Emergency Management Plans provide an overview of the specific roles and responsibilities of ISC regional offices and regional staff in supporting First Nations emergency management. This plan identifies the Ontario regional office's responsibilities towards and relationship with: First Nations, Indigenous-led organizations, the provincial government, and non-governmental organizations involved in emergency management activities that support First Nations communities.

This plan supports the ISC National All Hazards Emergency Management Plan by identifying region-specific:

Like the ISC national emergency management plan, this document is not meant to replace any First Nations, provincial, territorial, regional, or community procedures and plans. It is intended to complement any existing plans or procedures and may be used to help make informed decisions and take concrete actions to assist First Nations communities in emergency situations.

Ontario Region's All Hazards Emergency Plan (AHEP) adopts a comprehensive, Indigenous-led approach, recognizing First Nations' right to self-governance. This approach treats First Nations as equal partners, enhancing their capacity and autonomy while implementing community-specific solutions led by Chief and Council.

This regional plan is intended to be an evergreen document and will be reviewed and updated at least every 2 years, or following important changes to mandates and/or roles and responsibilities.

Scope

Ontario Regional Emergency Management Plan includes emergency management activities under the 4 pillars of emergency management: mitigation, preparedness, response, and recovery. The plan applies to reserve lands (as defined in the Indian Act) located in Ontario.

For additional information on scope, please review ISC's National All-Hazards Emergency Management Plan.

Regional risk environment

Canada's risk environment includes a broad range of natural and human caused hazards. This includes wildfires, floods, hazardous spills, accidents, earthquakes, hurricanes, tornadoes, disease outbreaks, power outages, cyber incidents, and terrorism risks.

Ontario First Nations, dispersed across diverse geological and climatic zones, face varied hazards based on location. Many communities are at risk due to isolation, poor socio-economic conditions, and limited emergency response capabilities. Effective management involves implementing the 4 pillars of emergency management at federal, regional, provincial or territorial, and community levels.

Regional profile

The Ontario Region, like the rest of Canada, is experiencing the complex effects of climate change such as severe weather events, vector-borne diseases, food insecurity and public health emergencies related to climate change. First Nations have and continue to be significantly disproportionately affected by the increased frequency and intensity of emergencies across the country.

In recent years, First Nations communities in Ontario, specifically in the northern region, have been significantly and increasingly affected by natural disasters, including floods, severe storms, forest fires, and extreme temperatures. In 2021, there were 1,198 wildfires, 3,780 people evacuated, and a record amount of land burned.

Ontario is home to the largest population of First Nations people in Canada at 24.2%. Ontario Region has 133 First Nations communities across the province representing at least 7 major cultural and linguistic groups. The communities vary from urban to remote and rural with limited access to services and emergency resources. They have varying levels of emergency management planning experience, capacity, proximity to services and supports, and response equipment. Five of the 20 largest bands in Canada are located in Ontario, with Six Nations being the largest with over 10,000 people.

Urban centers with significant Indigenous populations living off reserve are found in Thunder Bay, Sudbury, Sault Ste. Marie, Timmins, Ottawa, and Toronto.

Over 30 First Nations communities in Ontario are considered remote and isolated, more than any other region. These communities are situated in dense boreal forests and near lakes and are accessible only by air year round or ice road for a portion of the year. Remote communities require more resources and infrastructure for efficient response and mitigation of emergencies and, therefore, require extensive emergency planning and coordination to ensure community safety.

Risk assessment Ontario

Potential hazards

These include both natural and human-induced hazards:

  • natural disasters such as floods, fires, tornadoes, and storms pose risks. Ontario agencies monitor and forecast flood dangers, updating affected communities regularly
  • chemical release of hazardous chemicals such as gas and oil spill from train derailments and industrial pollution. During the 1960s and 1970s, Grassy Narrows First Nation (Asubpeeschoseewagong Netum Anishinabek) and Wabaseemoong First Nation were exposed to mercury poisoning from industrial pollution into the nearby Wabigoon River. The communities are still managing the health and economic effects of the exposure to mercury. In July 2021, ISC signed an agreement to support the development and operation of a Mercury Care Home that provides specialized care to residents to address their unique health care needs
  • nuclear emergency: nuclear power stations in Ontario are often near First Nations communities. Operators and municipalities must involve these communities in emergency planning. Bruce Power, Canada's largest nuclear plant, is close to Saugeen and Chippewas of Nawash First Nations. In 2023, expansion plans were announced, with ongoing community engagement
  • critical infrastructure failure, including power outages, damaged dams, dikes, and water treatment plants. These failures have caused long-term water boil advisories, water contamination, flooding, and power disruptions
  • environmental public health emergencies such as drinking water quality, air quality in homes, and environmental communicable diseases (for example, E. coli, blastomycosis)
  • communicable disease emergencies: the Health Protection Unit (HPU) collects data on communicable diseases that are reportable in the province and monitors trends to respond appropriately to outbreaks and emergencies (for example, influenza, COVID-19). Historically, the HPU has responded to outbreaks from vaccine preventable diseases (for example, measles, mumps, pertussis), pandemics (for example, influenza, COVID-19), respiratory diseases (for example, tuberculosis), and sexually transmitted and blood-borne infections (for example, hepatitis C, syphilis)
  • mental health emergencies: in the past years, Ontario region has been experiencing increased cases of suicidal ideation and attempts. The region has responded to "suicide pacts" and "suicide clusters," which are terms used to refer to suicides that have been planned among 2 or more individuals. Groups of youth have been involved in these events, which causes much distress to the entire community. The opioid crisis and substance misuse or abuse has also contributed to increases in these incidences, as well as in security related events

Risk analysis

Regional emergency management risk assessments use various data sources, including regional databases, Indigenous Representative Organization reports, provincial and federal tools, and community consultations. These tools analyze risks from floods, extreme weather, and public health issues.

In 2024, ISC implemented a risk-informed approach to ensure that emergency management support goes to those with the greatest need. At the community level, emergency management coordinators work with health partners to categorize community members' vulnerability for potential evacuations. Community emergency management plans also help assess local risks.

Regional legislation regulations authorities and agreements

The operational framework applied during an emergency was developed based on the Incident Management System (IMS) and incorporates both Emergency Management Ontario staff as well as ministry, provincial, federal, and other organizations into one system as required by the Provincial Emergency Operations Centre (PEOC) Commander. Ontario's IMS provides standardized organizational structures, functions, processes, and terminology for use at all levels of emergency response.

The PEOC will also coordinate meetings to review the current situation, the needs of the First Nations community, and challenges or arrangements within participating organizations as necessary in accordance with the operational cycle. Emergency Management Ontario, including the PEOC, will consult with the leadership of the community to confirm the communications approach, including the conduct of meetings, to ensure that they are meeting the needs of the community.

Governance structure

The ISC emergency management governance structure is consistent with the structure of the Government of Canada, as outlined in the Federal Emergency Response Plan, which involves engaging existing governance structures to the greatest extent possible in responding to an emergency. The federal governance structure, which parallels the structures of provincial counterparts, includes the Cabinet Operations Committee, the Deputy Ministers' (DM) National Security Committee, and the Assistant Deputy Ministers' (ADM) Emergency Management Committee.

Federal

The Ontario Region All Hazard Emergency Management Plan operates within the authorities and legislative requirements accepted by the Minister of Indigenous Services in supporting emergency management in First Nations communities. The responsibility for emergency management intersects all levels of government from federal, provincial, territorial and First Nations governments.

Federal legislation includes:

  1. Public Safety and Emergency Preparedness Act
  2. Emergencies Act (1995)
  3. Emergency Management Act (2007)
  4. Department of Indigenous Services Act (2019)
  5. Constitution Act (1867)
  6. Fisheries Act (1985)

Provincial

  1. Ontario Emergency Management and Civil Protection Act (EMCPA)
  2. Health Protection and Promotion Act (HPPA)
  3. Immunization of School Pupils Act (ISPA)
  4. Personal Health Information Protection Act (PHIPA)

Municipal

Ontario municipalities possess legislated and regulatory responsibilities to establish emergency management programs under the Emergency Management and Civil Protection Act (EMCPA). The EMCPA also defines the relationship between the province and municipalities during actual emergencies.

Indigenous led approach

In 2022, Ontario Region implemented an Indigenous-led approach to emergency evacuations, shifting from government-led methods. This approach involves a Joint Command Call led by First Nations communities, with provincial and federal support. It enhances community capacity and autonomy in emergency management, incorporating local knowledge and culturally appropriate services.

When external support is needed, a no wrong door approach activates the Joint Command Call, assessing risks and making informed decisions on evacuations. This model reinforces First Nations as equal partners in emergency response decision-making, streamlines processes, and increases accessibility to assistance, ultimately strengthening collective resilience through collaboration.

ISC Ontario Region provides support to First Nations organizations for emergency management services. Tribal Councils and Indigenous Representative Organizations coordinate additional resources and support capacity during emergencies, providing training and advocacy for First Nations communities. These initiatives represent a shift towards Indigenous-led emergency management services.

ISC Ontario Regional Emergency Management (EM)

ISC's Ontario Region EM Team is responsible for notifying the central administration Operations Centre of emergency activities or events in the region. They also must ensure that they establish and maintain reporting relationships with:

  • First Nations communities
  • Provincial Emergency Operations Centre
  • Public Safety Canada
  • Non-governmental organizations
  • Private sector representatives
  • Indigenous organizations
  • Volunteer organizations
  • Local governments (municipalities)

ISC Health Emergency Management (HEM)

The HEM Unit is a branch of the Emergency Management Assistance Program (EMAP) within the First Nations and Inuit Health Branch. The HEM Unit provides health and social emergency coordination support to First Nations communities in an all-hazards approach.

HEM funding reimburses First Nations and emergency management service providers for on-reserve and other eligible First Nations communities activities related to:

  • public health emergencies such as spread of communicable diseases, pandemics, food and water contamination, environmental hazards, and other health emergencies such as suicide clusters and opioid crisis
  • health aspects of natural disasters, including risks related to the continuity of health care for those with existing medical conditions, as well as the public health and mental wellness impacts of community evacuations and emergencies

Provincial Emergency Management Organization

The Emergency Management Ontario (EMO) under the responsibility of the Treasury Board Secretariat Ontario manages emergency programs, providing response functions to First Nations through agreements with ISC.

When a First Nation requests evacuation, the PEOC coordinates with various partners to ensure safe evacuation and return. The PEOC incident management team engages Ontario municipalities and First Nations to act as Host Communities and Transportation Hubs. For long-term evacuations, ISC collaborates with Ministry of Natural Resources and host communities to coordinate returns. The PEOC may deploy EMO staff as liaisons and advisors to assist impacted First Nations and Host Communities, either virtually or in person. ISC representatives may also perform similar roles for the federal government, ensuring comprehensive support during emergencies.

Operations

During non-emergency day-to-day activities, the regional emergency management staff are responsible for monitoring, validating, reporting and for providing the initial response to events of interest to ISC. During an emergency with implications to ISC, emergency management staff members are the primary point of contact and manage immediate operations as required by the emergency. They also receive, prioritize, distribute and log all in-coming information about emergencies or issues that have the potential to become emergencies.

Planning

ISC regional emergency management staff are responsible for ensuring that emergency management plans are developed, maintained and promoted. They are responsible for the establishment of policies and procedures relating to emergency management at ISC as well as situational awareness functions which include reviewing and analyzing information that is forwarded to the Operations Centre from various internal and external stakeholders.

Furthermore, planning staff review current and future emergency management requirements, including risk assessments, to determine the risk level and impact of an emergency. At the community level, Emergency Management Coordinator roles are funded to work with communities in all aspects of emergency management, such as developing and updating emergency management plans.

Logistics

ISC regional emergency management staff support the coordination of human and physical resources in First Nations (for example, facilities, equipment, fuel, water, food) during an emergency situation. ISC logistics staff have a vital role in supporting the operation and must be included in debriefings in order to fully capture lessons learned.

Finance and administration

ISC regional emergency management staff provide funding allocations, monitor and document all related financial costs and expenditures, forecast projected costs of the emergency, deal with contracts and physical and human resources, hire subject matter experts where and when needed, and finally, provide cost analysis and alternatives to senior departmental officials either during or after the emergency is concluded. They have a vital role in supporting the operation and must be included in debriefings to capture lessons learned.

Jurisdictional issues and responsibilities

Jurisdictional complexities in First Nations communities create challenges in emergency management. Communities intersecting provincial or national borders face conflicting laws and regulations, affecting water quality standards, border restrictions, and public health measures. Access to utilities often requires coordination with multiple jurisdictions, including other provinces or the United States.

Healthcare services may be accessed from neighboring provinces due to proximity, necessitating inter-regional coordination. Differing standards and regulations between provinces can hinder resource coordination, such as deploying healthcare workers for interprovincial evacuations. These jurisdictional issues complicate emergency response and require careful navigation to ensure effective support for First Nations communities.

Response activities during emergencies aim to minimize suffering and losses through actions like emergency communication, search and rescue, medical assistance, and evacuation. First Nations initiate emergency declarations through a Joint Command Call involving the community and ISC. ISC supports logistics coordination when requested by the province.

Response activities follow the Joint Emergency Management Steering Committee (JEMS) manual, which outlines service standards for evacuations, lists eligible EMAP expenses, and provides culturallyrelevant information for Host Communities to support evacuees' needs.

In order for the costs of evacuation to be considered an eligible expense for reimbursement from ISC the decision to evacuate a First Nation community must be based on:

  • a consensus of opinion between the First Nation Chief and Council, ISC and
  • a present or imminent event that requires prompt coordination of actions to protect the health, safety and welfare of people

Where a consensus of opinion is unable to be reached, a risk assessment using input from authoritative partners is used to determine if an evacuation is necessary. Authoritative partners may include but are not limited to the Ministry of Natural Resources and Forestry, Ministry of the Environment, Environment and Climate Change Canada, First Nation traditional knowledge, and Tribal Council expertise. The JEMS manual provides comprehensive evacuation standards for First Nations in the region. It outlines effective procedures for evacuating, caring for, and returning evacuees, while establishing minimum service requirements for host communities. The manual delineates roles and responsibilities of participating organizations, offers guidance for timely and coordinated evacuations, and details processes for recovering eligible costs from the federal government. By addressing these key aspects, the JEMS manual ensures proper support, coordination, and transparency for all parties involved during evacuation scenarios.

Communication and information sharing mechanisms

Communications is an essential component of ISC's emergency operations processes. The communications function supports the timely dissemination of essential emergency management-related information both internally and externally. All ISC communications teams responsible for emergency management—both nationally and regionally—are required to work closely with program and operations teams and must be included in debriefings and lessons-learned discussions.

ISC's Communications and Public Affairs Sector communications channels may include:

Communications tactics, led by the Communications and Public Affairs Sector at ISC, and through the national communications strategy, will take into consideration the needs of Indigenous communities such as providing pre-developed language that the community can adapt for their own use.

ISC's Ontario region also publishes a monthly bulletin for First Nations Chiefs, providing emergency management information when appropriate.

External channels of communication

Community leaders communicate emergency information through:

  • radio and TV public service announcements (PSAs)
  • social media posts on community pages
  • community bulletin boards

The Ontario regional communications team also develops proactive resources like PSAs and news releases. Information is shared on the OneHealth portal, accessible to the public and healthcare providers.

Provincial life-threatening alerts are sent to mobile devices and via TV announcements.

Response levels

Depending on the nature of the emergency, and the level of federal and provincial coordination required during an emergency, the Regional Director General and Regional Executive, in consultation with various stakeholders, may escalate or de-escalate the following response levels as appropriate:

  • Level 1 is the routine (day-to-day) activities of the Emergency Management Unit within the Governance, Individual Affairs and Government Relations of ISC Ontario Region. This level consists of coordinating responses to minor emergencies. It does not require the augmentation of the Headquarters Emergency Management Operations Center or any of the Regional Emergency Management Operations Centers
  • Level 2 is the partial augmentation of the Ontario Region Emergency Management Operations Center and the HQ Emergency Management Operations Centre. The Government Operations Centre (GOC) may also partially augment its personnel under this level. This level consists of augmentation by key staff within the Region and HQ, as appropriate, and liaison with the different levels of government involved in the emergency
  • Level 3 is the extensive augmentation of the Ontario Emergency Management Operations Centre and the HQ Emergency Management Operations Center (including the GOC). At this level, key staff are seconded to ISC's Regional and HQ Emergency Management Operation Centers and fully engaged in the response

Reporting mechanisms

Regional emergency management staff monitor and record events, providing periodic statistics to senior management and HQ. This information helps develop program history and future plans. Regions report events, activities, and expenditures to HQ EM quarterly. During emergencies, key staff prepare various reports:

  • situation reports
  • notification reports
  • summary reports
  • financial reports
  • others as needed

Culturally-relevant emergency services in Ontario

Lessons learned and after-action report

Emergency management units and stakeholders must learn from experiences to improve policies, plans, and procedures. Key practices include:

  • conducting formal debriefs with staff and stakeholders after events
  • identifying areas for improvement and lessons learned
  • preparing after-action reports promptly
  • including communication officials in debriefs and lessons learned processes

Training and exercises

Emergency management staff are encouraged to have basic ICS training from a certified Canadian organization. The ISC Ontario regional office coordinates with departmental and interdepartmental representatives for planning emergency management exercises.

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