FIRE BRIGADES OF THE DOMINION (REPORT ON THE) BY THE INSPECTOR OF FIRE BRIGADES

Appendix to the Journals of the House of Representatives, 1949 Session I, H-12

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1949 NEW ZEALAND

FIRE BRIGADES OF THE DOMINION (REPORT ON THE) BY THE INSPECTOR OF FIRE BRIGADES

Presented to Both Houses of the General Assembly by Command of His Excellency

The 'lnspector of Fire Brigades to the Hon. the Minister of Internal Affairs. Office of the Inspector of Fire Brigades, Sir, — Wellington, 30th September, 1949. I have the honour to submit the thirty-seventh annual report on the working of the Fire Brigades Act, 1926, for the year ended 31st March, 1949. ADMINISTRATION No new Fire Boards were created during the year, and the number in operation remains at sixty. DOMINION FIRE WASTE The insured fire loss, for 1947, the latest year for which the national figures have been prepared, was £1,599,822. This is a very large increase over the loss for the previous year (£764,392), but the figure includes approximately £500,000 in respect of the woolstore fire at Rongotai, Wellington, in 1946, referred to in my 1947 report, and also a proportion of the loss at Ballantyne's fire at Christchurch, referred to last year. The total fire wastage for the year —estimated in the usual way by adding an eighth to the insured loss —is £1,799,800. This is an all-time record for New Zealand, the highest loss previously experienced being £1,636,119 in 1928. Owing to the new legislation this will be the last year in which this report will be presented in its present form. A brief review of the existing method of preparing fireloss statistics is therefore justified. The national loss figures are based on returns made to the Government Statistician by the insurance companies of fire-loss payments actually made during the year. In some cases where salvage of damaged material is involved, or where the fire occurs late in the year, the insurance payments may be made in the following or even a later year. This is particularly the case with respect to the large fires which are responsible for the major part of the national fire losses. The result is that the national returns, while they are the most accurate figures available, if taken a period, are not strictly so (as in the case of the year under review) in respect of any particular year.

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Tlie returns of losses in fire districts attached annually to these reports are probably slightly .less accurate than the corresponding national figures. This is, firstly, because they are in some cases prepared before the insurance payments are made, and the estimate of the brigade officer is probably not so accurate as that of the insurance adjuster. In the second place they include a figure for uninsured loss which is usually based on the owner's estimate. In very few cases have the owners of residential property accurate schedules of contents on which such an estimate can be based, and stock records in commercial buildings are often destroyed or are unreliable. It must also be noted that the returns have reference only to the fires attended by the brigades. There are, in addition, a considerable number of small fires, mostly involving damage of less than a £lOO value, which are extinguished without calling the brigade. The insurance companies pay out on these fires, and the loss is therefore included in the national returns. The recording of fire losses in fire districts is of definite value despite its comparative inaccuracy. The fire districts include most of the urban property, and this will be even more the case when the new legislation comes into force. The returns are available much earlier than the national figures, and since they cover a large percentage of the property at risk in New Zealand they serve to confirm or modify the trends, indicated by the national returns. They also give some positive indication of the value of the fire protection service in any individual district and tend to encourage the brigades in their work and to justify the expenditure on the fire service by the local authorities. Reference has been made in these reports during recent years to the sharp rise v hich has occurred in the national fire losses, and to the increase in the number of fires l jtended by the brigades. These trends are clearly shown in the following table, which covers the period since the First World War. Attention is directed to the remarkable similarity between the fire experience of the peak-loss period 1926-1931 and the years immediately following the Second World War. There is the same sudden increase in the number of fires within two years, and the concurrent heavy increase in the loss figures. It seems not unlikely that the reason for both increases is an economic one. The view is widely held that the most important economic influence on loss by fire is that arising from the fact that in times of falling prices it sometimes pays to have a fire in insured property. This may result, apart from the possibilities of incendiarism, in lesser care with respect to fire on the part of owners and those responsible for the control of property. It is possible, however, to make the deduction from the facts set out in the table that there is an even more important fire-loss factor arising from economic conditions such as unsettlement due to the war, monetary inflation, or a general state of prosperity, which should be given some consideration. Table I—Number of Fires and Total Fire Loss in Fire Districts, 1918-49 Number Number of Fire Number Total of Fire Number Total Districts. of Fires. Fire Loss. Districts. of Fires. Fire Loss_ £ £ 1918-19 .. 31 416 151,158 1934-35 .. 53 753 173,172 1919-20 .. 35 480 137,772 1935 36 .. 54 765 181,296 1920-21 .. 35 540 394,704 1936-37 .. 55 812 199,592 1921-22 .. 35 531 183,619 1937-38 .. 55 859 170,167 1922-23 .. 38 589 238,313 1938-39 .. 55 905 441,489 1923-24 .. 40 741 358,024 1939-40 .. 55 892 280,278 1924-25 ..43 828 306,114 1940-41 .. 55 849 228,929 1925-26 .. 46 898 352,638 1941-42 .. 56 792 466,589 1926-27 (9months)) 48 1,291 516,366 1942-43 .. 58 903 309,128 1927-28 .. 49 1,044 498,671 1943-44 .. 59 902 334,600 1928-29 .. 50 1,350 710,596 1944-45 .. 60 1,391 548,354 1929-30 .. 51 1,351 410,217 1945-46 .. 60 1,807 876,127 1930-31 .. 55 1,333 548,729 1946-47 .. 60 1,648 1,201,508 1931-32 .. 55 862 373,820 1947-48 .. 60 1,940 992,207 1932-33 .. 53 737 201,736 1948-49 .. 60 1,973 541,64T 1933-34 .. 54 705 245,195

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The economic conditions immediately following the two world wars differed materially. In 1919 the New Zealand market was flooded with imported goods ordered but not delivered during tlie war, and the minor depression of tfie early " 20s " followed. If the commonly held theory that bad times are a major contributing factor in fire loss is correct, it would be reasonable to expect an increase in both the number of fires and the amount of loss in the years immediately following the war. This is not shown in either the national or the fire district figures. It was during the comparatively prosperous period 1926 to 1931 that both the number and severity of fires increased, and both figures dropped sharply when the full impact of the world depression was felt in 1931. On the other hand, the Second World War has been immediately followed by a period of rising prices, full employment, and shortage of goods and accommodation. Replacement of either goods or buildings destroyed by fire is difficult, and there is every financial inducement to the employer, owner, or person in control to take extreme safeguards against fire. In fact, both the number of fires and the average losses have more than doubled. Experience shows that the actual fire-loss figures for any year is determined mainly by the number and severity of large fires. In these reports the dividing-line between the two classes has been taken at £5,000, which represents a fire which has reached a stage difficult to control, and in which the fire is liable to involve the whole or major part of the building and contents. The following table contains an analysis of the losses for three normal low-loss years representative of the period 1931 to 1941, contrasted with the figures for the last three years.

Table II —Comparison of Fire Statistics in Fire Districts, 1938-41 and 1946-49

The importance of these figures is to show that while the large-fire loss has varied from £lOO,OOO to £1,000,000, the small-fire loss is relatively constant in the two periods. In round figures, the number of small fires ajjd the loss in these fires has doubled in the high-loss period of the last three years. Most fires are due to carelessness of one sort or another. The basis on which the returns have been made in fire districts is not sufficiently accurate and they cover too short a period to warrant a positive deduction being made from them. The figures in these two tables do, however, contain the hint that twice as many-fires involve carelessness by twice as many persons. It must also be noted that twice as many fires in trade and industry is likely to result in an increased number of large fires, and an increased national fire wastage which only good fortune will retain within economic limits. FIRE-PREVENTION The indications from the world-depression period are that the knowledge that there is not another job around the corner does tend to make people careful to prevent the fire which will throw them out of work. We hope to overcome our post-war economic

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1938-39. 1939-40. 1940-41. 1946-47. 1947-48. 1948-49. Number of large fires (loss 13 14 6 19 1 18 14 £5,000 or more) Loss in large fires £302,150 £173,882 £103,485 £1,009,630 £748,096 £315,101 Number of small fires (loss 892 878 843 1,629 1,922 1,959 less than £5,000) Loss in small fires £129,339 £106,356 £139,204 £194,878 £244,111 £226,542 Average loss per fire in small £145 £121 £165 £119 £127 £116 fires

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difficulties without forcing or even permitting a major trade recession. Excessive fire loss is a national wastage which must of necessity depreciate the economic position of any country. Our present rate of loss is undoubtedly excessive, and if not checked will become a factor seriously affecting our economy. The carelessness of the rank-and-file employee in trade and industry is the cause of most of the rank-and-file fires, as well as of the conflagrations which boost the fire-loss returns. If they are not to learn the hard way, some effort must be made to bring home to both employer and employee the seriousness of the present position. The Fire Services Bill now before Parliament requires the Fire Service Council to encourage, supervise, and carry out fire-prevention activities. The facts set out above indicate that this should not be one of its less important functions. THE LOSS OF LIFE IN FIRES The number of deaths resulting from fires during the year under review was seven —- five in residence fires and two in apartment houses. LARGE FIRES The following table gives details of the fires occurring in fire districts during the year where the loss exceeded £5,000.

Table III —Fires with Loss Exceeding £5,000

NEW LEGISLATION A further redraft of the Fire Services Bill was made during the year after consideration by the Government of the report of the Royal Commission on the Ballantyne fire at Christchurch, The recommendation of the Commission that the Fire Service shou|d be

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Fire District. ' Day and Date. Time. Occupation of Premises in Which Fire Occurred. Cause of Fire. Loss. Auckland Saturday, 15/1/49 . . 1.37 a.m. 1 Educational Centre Unknown .. £ 25,801 Friday, 21/1/49 2.34 a.m. Brick and tile store and drying19,200 shed 55 Sunday, 20/2/49 11.45 a.m. Apartment house ■ 8,000 Ohristchurch Thursday, 24/2/49 . . 6.31 p.m. Cabinetmaking-factory ,, 16,983 Dunedin Monday, 14/3/49 10.33 a.m. Rope and twine manufacturers 34,233 bulk store Wednesday, 6/10/48 2.40 a.m. Clothing factory, restaurant, Burning embers from 8,986 and shops heating furnace „ Friday, 12/11/48 1.00 a.m. Theatre, factory, offices, and Unknown .. 14,545 wool-store Feilding Wednesday, 12/5/48 2.25 a.m. Flourmill and grain and » 8,015 fertilizer store (Ireymouth .. Saturday, 26/6/48 .. 1.59 a.m. .Brewery bottle-store ,, 8,450 Lower Hutt .. Monday", 24/5/48 11.22 p.m. Woollen-felt mill Suspected spark from 47,611 wool-teasing machine Nelson Monday, 7/6/48 12.30 a.m. Tobacco-factory Overheating of electric 5,435 blower Timaru Monday, 2/8/48 3.33 a.m. Engineers' merchants and wine Unknown 9,520 and spirits store Wellington .. Saturday, 16/10/48 .. 1.04 a.m. Tobacco-factory and clothingNot established — 20,872 factory possibly radiation from gas-heater set on wooden floor Saturday, 30/10/48 .. 10.0S p.m. Wool-store Unknown 87,450 1 £315,101

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« administered by three Commissioners has not been adopted. The Bill retains the existing principle for administration of the local service by the local authority, but provides for general control of the whole service by a Fire Service Council of seven members. The office of Inspector of Fire Brigades will be discontinued. He will be replaced on the administration side by the Fire Service Council, and on the technical side by a chief officer who will be responsible to the Council and will have extended powers with respect to technical matters. The explanatory memorandum attached to the Bill on presentation to Parliament, which sets out the principal provisions, is attached as a Schedule to this report. INSPECTION • It has not been possible to carry out. any routine inspection duties during the year, and the inspection work has been confined to special visits made in connection with the purchase of land, plant and equipment, and the erection of new buildings by Fire Boards, the distribution of Government plant and equipment, and the general development of the emergency organizations. Attached (Table IV) are statistical returns covering the year under review. I have, &c., R. Girling-Butcher, Inspector of Fire Brigades.

SCHEDULE EXPLANATORY MEMORANDUM ATTACHED TO THE EIRE SERVICES BILL 1. This Bill consolidates all the existing legislation affecting fire brigades. It has three main purposes—to improve the standard of training and co-ordination of the fire service, especially in connection with its operation at serious fires ; to improve the financial provision made for the smalltown fire brigades ; and to provide an emergency service which will function for rural fire-protection in peacetime and form the nucleus for the fire defence of the country in the event of war. The principal changes in the existing legislation are set out below. Fire Service Council 2. The Bill sets up a Central Authority (clause 3) to be known as the Fire Service Council, which will be in general control of the fire service and responsible for its efficiency. The Council will consist (clause 4) of seven members, four nominated to represent the contributors of revenue, two the employers and employees in the larger centres, and one the volunteer brigades. The duties of this Council (clause 8) include the carrying out of experimental and research work into fire-service methods and equipment, the publication of technical information, the inspection of brigades, and the establishment of training courses for both officers and men. It may require any Urban Fire Authority to improve the efficiency of its service (clause 11) and the Authority must comply unless it can establish to a Magistrate or by arbitration that the requisition is in the circumstances unreasonable. The Council may delegate its functions (clause 13). This will enable provision to be made for some measure of regional control if this is considered desirable. The staff of the Council is to be provided from the Public Service (clause 15). The existing Inspector of Fire Brigades will be replaced by a Chief Officer (clause 16), who will have extended powers and be in more direct control of the technical side of the fire service. Districts 3. The districts in which brigades operate are classified into united urban fire districts, urban fire districts, and secondary urban fire districts. The two f> ~t mentioned consist of the existing united fire districts and fire districts controlled by Fire Boards, set out in the Third Schedule, and other urban areas in which the water supply is approved Equate to provide a good standard of

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protection. No fire district will be created in future unless the water supply is so approved (clauses 10 and IS). Urban areas in which there is no reticulated water supply or where the water supply is below the approved standard are to be classed as secondary urban fire districts. The Bill varies the basis of contribution of revenue (clause 53) for these districts and limits the expenditure in view of the smaller size of the towns and the lesser standard of protection possible. Urban Fire Authorities 4. The existing legislation under which fire brigades are established and maintained is repealed (clause 87) and all fire brigades will come under the Bill. The existing system of local administration of brigades is retained. The controlling local authorities are designated Urban Fire Authorities (clause 22) to distinguish them from the corresponding Rural Fire Authorities set up under the Forest and Rural Fires Act, 1947. The existing Fire Boards are to be retained but, except where united urban fire districts are constituted, no more Fire Boards will be set up. Instead of this the territorial local authority will be established as the Urban Fire Authority. It will set up in each district a Committee to control the fire brigade or brigades, which will be financed as set out below. In urban fire districts this Committee will have the same membership as a Fire Board (clause 23 (3) ) and will exercise most of the powers of the Authority|(cfa-M-se 22 (3) ). In secondary urban fire districts a similar Committee is to be set up containing a representative of the brigade, but it will have only such powers as are delegated by the local authority (clause 23 (4) ). The duties prescribed for these Authorities (clause 32) extend the existing provisions of the Fire Brigades Act, 1926. All Urban Fire Authorities are required to conform with the scheme of fire defence and rural fire protection provided for in clause 9 of the Bill. Volunteer and Industrial Fire Brigades 5. Provision is made (clauses 41 to 43) for the registration of all volunteer and industrial brigade). The purpose of this so far as the volunteer brigades are concerned is to ensure that when the members of the brigade are not individually employed (clause 40) the agreement of service and the brigade rules and regulations will ensure the operation of the brigade under proper conditions of discipline and efficiency. It is contemplated that industrial brigades will in future function to some extent under the rural fire protection and emergency scheme. It is therefore proposed that they shall be registered and their conditions o"f service approved on the same basis as the volunteer brigades. Clause 40 (6) restricts the operation of the Industrial Conciliation and Arbitration Act, 1945, in its application to volunteer fire brigades. Financial Provisions 6. The Bill increases considerably the Government contribution to the cost of the urban fire services. It provides that the expenditure in fire districts shall be contributed (clauses 50 to 53) in the proportions, Government 10 per cent., underwriters 50 per cent., local authorities 40 per cent. (The respective contributions payable under the Fire Brigades Act, 1926, for the current year are I*2 per cent., 49-4 per cent., and 49-4 per cent.) In secondary fire districts the local authority is required to pay at least half the costs. This is in recognition of the fact that a water supply adequate for fire protection has not been provided. A subsidy at the rate of pound for pound (clause 53 (3) )is payable by the Government and the underwriters, who contribute in the proportions of l/6th and 5/6ths respectively (clauses 50 (1) (a) and 51 (I) (b) ). The amount of the subsidy is limited to £l5O, except in special cases where a direction is given by the Minister. The local authorities pay no contribution to the costs of the Fire Services Council. These are divided between the Government and the underwriters. Provision is made that the cost of special fire protection required for property of the Crown (such as Devonport Naval Base and Trentham Camp, and certain of the forestry areas) shall be paid from the funds of the Fire Service Council. Fire Defence and Rural Fire Protection 7. The Fire Service Council is required (clause 9) to prepare and administer a scheme for fire defence, rural fire protection, and reinforcement between brigades at large fires, it may provide equipment for this purpose or, in the case of the larger Urban Fire Authorities, may require the latter to make provision in accordance with the scheme. Regulations are to be made (clause 84) for the registration of both residential and commercial buildings in rural areas, and the Council will provide for the protection of these by fire brigades located in the vicinity and for the payment to the Urban Fire Authorities of the registration fee The costs of the actual fire protection will be borne by the territorial local authority of the ruraj 'id provision will be made for co-ordination with the activities of the Rijral Fire Authorities est? under the Forest and Rural Fires Act, 1947*

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Table IV—Miscellaneous Statistics for Fire Districts

Approximate Cost of Printing.—Preparation, not given ; printing (2,104 copies), £2l.

By Authority: E. E. Owen, Government Printer, Wellington.—l 949. Price, 6d.

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aT d vis tw O t, ■ m d m O « d » o §ihf Fire District. Population as at 3: March, 1949. Rateable Capital VaS 1st April, 1948. Insurance Compan Premium Income Year Ended 3 March, 1948. Number of Fire Ca Fires Involving Loss Property. Insurances on Prope Involved in Fires Insured Fire Lo Buildings and C tents. Uninsured Fire Lo Buildings and C tents. Total Fire Loss. Estimated Expendii Authorized for Y Ending 31st Mar 1950. £ £ £ £ £ £ £ Auckland Metro-253,3-10 88,898,877 451,105 1,471 470 3,615,191 73,722| 24,116 97,838 99,094 politan Balclutha 2,350 515,090 2,884 25 2 1,200 50 100 150 660 Cambridge 2,830 1,136,010 5,104 13 4 7,850 62 62 1,001 Carterton 2,050 572,006 4,181 17 5 5,066 740 740 950 Christchurch 126,600 36,099,222 187,475 1,155 285 1 ,594,732 38,296 2/288 40,584 52.400 Dannevirke 4,620 1,537,651 8,284 12 4 9,000 1,600 1,600 1,032 Dargaville 2,550 883,025 4,793 3 1 40 40 730 Dunedin Metro84,420 28,048,913 131,378 1,000 .217 2 ,56i,982 75j 001 2,699 77,700 43,200 politan Eltham 1,900 446,790 2,563 6 1 500 1 1 484 Feilding 5,420 1,498,761 8,572 10 2 72,220 6,590 i, 500 8,090 870 Foxton 1,860 577,746 3,625 18 5 16,600 224 224 377 Grisborne 16,500 4,846,871 33,305 41 13 46,360 1,613 ' 103 1,716 4,550 Greymouth 9,010 1,943,045 13,070 22 14 20,075 11,234 3,230 14,464 1,375 Hamilton 28,800 9,808,696 39,861 146 32 47,035 3,950 943 4,893 12,000 Hastings 17,050 4,871,092 27,522 58 25 30,160 3,690 620 4,310 3,795 Hawera 5,270 1,644,476 11,320 40 11 3,600 468 106 574 3,020 Hikurangi 1,070 130,800 960 8 1 960 960 960 454 Hokitika 2,920 539,965 5,215 3 3 1,600 242 242 862 Invercargill 26,300 7,826,375 42,188 289 72 626,444 9,776 ' '811 10,587 18,192 Kaiapoi 1,970 400,325 3,431 8 4 3,400 1,409 80 1,489 638 Kaitangata 1,370 224,475 1,223 7 3 2,050 41 41; 435 Lawrence 580 59,561 787 4 220 Levin 3,850 1,551,790 7,631 15 5 '6,775 130,435 i i 437 i j437 563 Lower Hutt 40,900 •12,541,367 58,833 242 47 52,793 ' 964 53,757 12,176 Masterton 10,700 2,907,283 17,138 79 25 101,152 301 6 307, 5,110 Milton 1,560 304,905 3,173 13 3 500 450 335 785 455 Morrinsville 2,430 691,052 5,827 5 2 150 5 5 580 Napier 19,500 8,810,440 43,500 111 47 116,725 2,569 57 2,626 8,300 Nelson 14,750! 3,684,474 27,503 111 25 81,863 11,045 1,818 12,863 5,243 New Plymouth .. 21,000 6,252,828 30,744 130 78 12,045 876 1,168 2,044 8,200 North Shore 31,270 9,368,933 38,165 90 29 125,097 6,734 344 7,078 11,500 Oamaru 8,170 3,234,825 12,677 1,875 Ohakune 1,510 151,776 1,589 9 " 4 "i,800 65 65 438 Opotiki Otaki .. 1,780 634,765 3,583 9 2 859 2,290 404,492 3,297 6 2 'i,300 ' 100 ' 130 ' '230 400 Pahiatjia 1,860 518,881 4,947 9 2 50 22 143 165 550 Palmerston North 28,900 8,850,734 49,923 159 47 101,719 3,262 296 3,558 15,600 Patea United 1,700 386,87-6 5,738 10 4 4,075 340 7 347 1,050 1'etone 11,650 3,663,470 28,265 37 24 17,350 2,678 460 3,138 6,475 Port Chalmers .. 2,640 411,892 3,655 2 1 850 20 20 450 Pukekohe 3,720 1,159,731 5,467 8 3 2,100 1,968 i j 050 3,018 950 Kotorua 9,330 3,370,206 15,206 83 14 73,415 2,448 3,165 5,613 4,042 Stratford 4,130 1,565,453 7,083 12 7 2,380 187 142 329 1,707 Taihape Taumarunui 2,330 716,170 5,090 17 3 5,290 2,019 2,019 596 2,920 999,280 5,149 7 2 3,700 7 7 1,050 Tauranga 5,900 1,930,657 10,749 22 6 43,940 1,320 " 60 1,380 1,759 Te Aroha 2,620 849,067 6,280 14 7 3,600 662 860 1,522 547 Te Awamutu 3,390 1,184,105 6,937 17 1 100 5 25 30 690 Timaru '20,300 5,812,885 27,570 126 29 61,701 18,486 590 19,076 10,050 Upper Hutt Waihi 6,730 2,476,175 7,485 87 22 10,590 1,142 992 2,134 2,000 3,850 355,321 6,034 27 5 19,300 577 15 592 810 Waipukurau 2,280 549,525 4,346 9 1 850 55 55 658 Wairoa 3,120 804,380 4,475 11 4 3,200 2,280 ' '280 2,560 604 Waitara 2,670 613,737 6,740 6 3 975 975 392 Wanganui 25,700 9,162,653 45,637 246 64 177,095 6 j 580 1,082 7,662 16,800 Wellington 136,980 51,179,299 278,703 1,524 251 2 ,031,986 130,363 6,082 136,445 81,000 Westport 5,160 978,338 6,632 15 4 7,010 797 797 1,042 Whakatane 3,210 746,556 5,435 10 4 2,800 45 52 97 814 Whangarei 10,700 4,853,695 17,424 37 19 22,404 3,695 323 4,018 2,104 Woodville 1,180 221,576 2,396 5 3 475 21 21 536 Totals 1,061,520 346,409,364 1,809,872 7,676 1,973 11 ,839,847 485,023 58,057 543,080 454,320 Protected areas outside fire districts — Christchurch .. 28 28 193,589 26,591 629 27,220