Hazard, Risk and Vulnerability Analysis 2018

Hazard, Risk and Vulnerability
Assessment
2018
Photo by Jason Wilde

Contents
SECTION 1: INTRODUCTION ............................................................................................................................................. 1
Hazard Risk and Vulnerability Assessment Overview ............................................................................2
Scope & Methodology..........................................................................................................................................2
Risk Assessment ..................................................................................................................................................... 4
Overview of Hazards............................................................................................................................................ 5
BOWEN ISLAND MUNICIPALITY OVERVIEW ............................................................................................................9
SECTION 2: VULNERABILITY ...........................................................................................................................................10
Social Vulnerability .............................................................................................................................................. 10
Language Groups ............................................................................................................................................................... 10
Age Groups ............................................................................................................................................................................ 10
Non-Residents ........................................................................................................................................................................ 11
Economic Vulnerability ....................................................................................................................................... 11
Environmental Vulnerability ............................................................................................................................. 12
Physical Vulnerability .......................................................................................................................................... 12
Critical Response and Recovery Facilities ............................................................................................................. 12
Critical Infrastructure .......................................................................................................................................... 13
Energy ....................................................................................................................................................................................... 13
Communications ................................................................................................................................................................. 14
Finance ..................................................................................................................................................................................... 16
Health Care ............................................................................................................................................................................ 16
Food ........................................................................................................................................................................................... 16
Water......................................................................................................................................................................................... 17
Municipal Water ...................................................................................................................................................................................... 17
Non-Municipal Water ........................................................................................................................................................................... 17
Transportation ..................................................................................................................................................................... 18
Safety ........................................................................................................................................................................................ 19
Government ........................................................................................................................................................................... 19
SECTION 3: RESPONSE ORGANIZATIONS ............................................................................................................... 20
Fire and Rescue ..................................................................................................................................................... 20
Police.......................................................................................................................................................................... 21
Ambulance ............................................................................................................................................................. 22
Search and Rescue .............................................................................................................................................. 22
SECTION 4: EMERGENCY SUPPORT AND PREPAREDNESS ORGANIZATIONS ........................................ 23
Bowen Island Municipality Emergency Program .................................................................................... 23
Emergency Operations Centre (EOC) ........................................................................................................ 23
Public Works Department ............................................................................................................................... 24
Parks and Environment Department ........................................................................................................... 24
Bowen Island Public Notification System (BowENS) ............................................................................ 25
Amateur Radio....................................................................................................................................................... 25
Emergency Support Services ......................................................................................................................... 25
Neighbourhood Emergency Resource Persons (NERPs) ..................................................................... 25
SECTION 5: PRIORITY HAZARDS OVERVIEW ......................................................................................................... 26
All Hazards Recommendations ..................................................................................................................... 26
Municipal Readiness......................................................................................................................................................... 26
Outreach and Education ................................................................................................................................................ 26
Evacuation Planning ......................................................................................................................................................... 26
PRIORITY HAZARDS........................................................................................................................................................... 26
Earthquake .............................................................................................................................................................. 26
Recommendations..............................................................................................................................................................27
Structure Fire ......................................................................................................................................................... 27
Recommendations............................................................................................................................................................. 28
Wildland Urban Interface (WUI) Fire ........................................................................................................... 28
Epidemic and Pandemic ................................................................................................................................... 29
Rockfall ..................................................................................................................................................................... 30
Recommendations.............................................................................................................................................................. 31
Marine Accident ................................................................................................................................................... 31
Hazardous Materials Spills ............................................................................................................................................ 31
Infrastructure Damage ..................................................................................................................................................... 31
Extreme Weather Event & Power Outage ................................................................................................. 32
Recommendation ............................................................................................................................................................... 33
NEXT STEPS ........................................................................................................................................................................... 33
APPENDIX A – RISK QUANTIFICATION INDEX ...................................................................................................... 34
APPENDIX B – BOWEN ISLAND FIRE DEPARTMENT APPARATUS INVENTORY ...................................... 35
APPENDIX C – BOWEN ISLAND HRVA UPDATE PROCESS ............................................................................... 38
APPENDIX D – BOWEN ISLAND HRVA RECOMMENDATIONS ....................................................................... 40
INTRODUCTION
Section 1: Introduction
EmergeX Planning Inc. (EmergeX) originally conducted this Hazard Risk and Vulnerability
Assessment (HRVA) for the Bowen Island Municipality in 2007. An update was conducted in
2017 by the Emergency Program Coordinator and Emergency Program Management
Committee and approved by the Emergency Program Executive Committee and Council in
2018. Further details on the 2017/2018 update process are available in Appendix C.
An HRVA is a critical part of every emergency program and is a requirement mandated by

the Local Authority Emergency Management Regulation of the BC Emergency Program Act.
Section 2(1) of this regulation requires local authorities to prepare emergency plans that
reflect the local authority’s assessment of the relative risk of occurrence and the potential
impact on people and property of the emergencies or disasters that could affect all or any
part of the jurisdictional area for which the local authority has responsibility.
No government has unlimited resources allowing them to plan for every hazard event
possible, therefore some form of ranking is required when deciding which hazards are most
important to plan for. Based on the risk rankings completed, 29 hazards that could affect the
Bowen Island Municipality were identified. This assessment identifies the risk that each
hazard presents to the Municipality, thereby allowing Bowen Island to plan for mitigation,
response, and recovery efficiently within budgetary and other constraints. A consolidated
list of recommendations can be found in Appendix D.
The information presented in this assessment can be used by the Bowen Island Municipality
to:
• Update its emergency plan.
• Allocate resources for risk mitigation of applicable hazards beginning with the
highest-risk hazards.
• Enhance community preparedness.
• Prepare budgets for cost-effective, on-going emergency planning.
This assessment uses both quantitative and qualitative methods to determine risk ratings for
various hazards, with each hazard being assigned a relative risk ranking. The results of this
assessment identify the following eight hazards as priority risks to the Municipality as a
whole:
Earthquake Wildland Urban Power Outage Marine

Interface Fire Accident
Epidemic or Pandemic Rockfall Extreme Weather Structure Fire
The Risk Quantification Index in Appendix A shows the relative ranking of all hazards
analyzed. These rankings were determined using EmergeX Best Practices methodology
combined with insight from local experts and emergency personnel; it therefore may not be
identical to risks assigned using other methods or criteria.
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INTRODUCTION
Hazard Risk and Vulnerability Assessment Overview

Considering hazards individually may lead to a skewed set of priorities for action. It is
equally important to consider the severity of possible impacts from the hazard as well as
the frequency or likelihood of a hazard event occurring. The combination of severity and
likelihood is termed the level of risk.
In determining the severity of a hazard event, a community’s vulnerability must be examined.

Vulnerability is defined as people, property, infrastructure, industry and resources, or
environments that are particularly exposed to adverse impact from a hazard event.
Likelihood reflects the frequency of occurrence for a particular hazard event and can range
from rare events occurring every 200 years to more frequent events, which usually have a
number of recorded incidents. A Hazard Risk and Vulnerability Assessment examines the
hazards that may impact a community and the risk that each hazard event poses to the
community.
Scope & Methodology

This HRVA is designed to provide an assessment of the hazards that may present risks to the
Bowen Island Municipality. The objective of the HRVA is to:
• Investigate prominent natural and human-caused events, and
• Identify any threats that may require a timely and coordinated response to protect
lives, property, and reduce economic losses.
The intent of this Hazard Risk and Vulnerability Assessment is to provide a basis from which
local planners, politicians, and responders can update the Municipality’s emergency plan,
allocate resources for risk mitigation, enhance community preparedness, and prepare
budgets for cost-effective, on-going emergency planning.
This assessment is based on both primary and secondary sources, and at times relies on
anecdotal evidence. Both quantitative and qualitative methods are used to determine
hazard ratings for the area of interest. It is worth noting that the assessment – because it is
qualitative and quantitative – includes subjective components; duplication of this
assessment by third parties may not yield exactly the same results.
The scope of this assessment will cover the geographic area of Bowen Island. Factors
considered in developing a list of hazards for the Bowen Island Municipality include:
demographics, geography, economy, transportation modes and routes, weather and
climate. In selecting these events for consideration, BIM acknowledges the potential that
other hazards may exist; the hazards identified in this assessment are considered more likely
to impact the Municipality than others.
This assessment takes an ‘all hazards’ approach, meaning both natural and anthropogenic
hazards that may impact Bowen Island are considered. The methods and tools used to
conduct this assessment are adherent to and used in conjunction with the standards
outlined by Emergency Management British Columbia’s (EMBC) Hazard Risk and
2
INTRODUCTION
Vulnerability Analysis Tool Kit. 1 Contextual and background information pertaining to the
Bowen Island Municipality is contained in Sections 2-4. Following these, Section 5 details
and evaluates priority hazards as stipulated by EMBC.
Each hazard was evaluated based on the likelihood of occurrence (Table 1) and severity of
its impact (Table 2). The severity of a given hazard is the sum of the impact of four factors:
people, property, the environment and the economy/society.
Table 1- Likelihood Rating for Occurrence of Hazards

LIKELIHOOD OF OCCURRENCE SCORE
Highly unlikely or anticipate less frequently than 1 in 200 years 1

101-200 yrs occurrence 2
Once a year or more occurrence 6
The categories of impact for each factor were individually ranked on a numeric scale from
least to the most severe (Table 2). The purpose of this ranking system is to adhere to the
priorities of the British Columbia Emergency Management System (BCEMS) response goals,
which guide decision makers in prioritizing response activities. Although the goals are listed
in order of priority, “personnel take all available information into account when determining
incident-specific priorities.”2 It is worth noting that “these goals can be interpreted in
different ways based on the operational requirements of each incident. For example, it may
be determined that the best way to reduce suffering is to protect housing (essential
infrastructure) as no other shelter is available.” 3 The BCEMS response goals are:
1. Ensure the health and safety of all responders
2. Save lives
3. Reduce suffering
4. Protect public health
5. Protect Infrastructure
6. Protect property
7. Protect the Environment
8. Reduce social and economic losses
To determine which hazards are of priority for Bowen Island, a Risk Tolerance Boundary is
determined following the same criteria as used above. A comparison of the risk scores for
each hazard against the Risk Tolerance Boundary score provided the basis for determining
priority hazards.
1
Emergency Management British Columbia. 2004. Step-by-Step HRVA Toolkit.
2
Emergency Management British Columbia. 2016. BC Emergency Management System.
3
Ibid
3
INTRODUCTION
Risk Assessment
This section of the report examines the hazards that may impact people and property in the
Municipality and the risk that each hazard event poses. A quantitative assessment of the risk
each hazard poses is summarized in the Risk Quantification Index (Appendix A). The Risk
Tolerance value is calculated by multiplying severity by likelihood. A Risk Tolerance
Boundary of 28 points was established based on an evaluation of an acceptable level of risk
to Bowen Island. When the risk tolerance of a hazard exceeds 28, the hazard poses an
unacceptable level of risk and is discussed as a priority hazard. It is important to note that
many different combinations of criteria values are possible, and even with a high severity
ranking the hazard may still fall below the Risk Tolerance Boundary (depending on
likelihood), and vice versa.
No community has unlimited resources allowing them to plan for every hazard event
possible. Therefore, the purpose of determining a Risk Tolerance Boundary is to determine
which hazards are of the highest priority for mitigation. Even though this report has
determined a list of priority hazards, all hazards should be addressed from highest to lowest
risk in the order of their priority; hazards above the Risk Tolerance Boundary warrant review
and development of mitigation actions to reduce the risk to an acceptable level.
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INTRODUCTION
Table 2- Severity of Impact
CATEGORIES CRITERIA SCORE
PEOPLE Max Sub-Score: 15

None 0
Single 5
Injuries and Fatalities
Multiple 10
Mass 15
PROPERTY Max Sub-Score: 12
No Disruption 0
Temporary Disruption 1
Response and Recovery
Multi-day Disruption 2
Facilities
Partial Loss 3
Total Loss 4
No Disruption 0
Temporary Disruption (<24hrs) 1
Critical Infrastructure Multi-day Disruption (>24hrs) 2
Partial Loss of facility/services 3
Total Loss 4
Not significant 0
Single property damaged 1
Property Damage Multiple properties damaged 2
Single property destroyed 3
Multiple properties destroyed 4
ENVIRONMENTAL Max Sub-Score: 4
No Damage 0
Minor Damage 1
Resources damaged with short term
2
Environment recovery (<5days)
Resources damaged with long term
3
recovery (5 or more days)
Resources damaged beyond recovery 4
ECONOMIC & SOCIAL Max Sub-Score: 4
No impact / No costs 0
Temporary impact (<24hrs) / Low costs 1
Short term impact (<5days) / Medium
2
Economic and Social costs
Long term impact (5 or more days)/
3
High costs
Long lasting impact beyond recovery 4
Overview of Hazards
This overview outlines the definition and understanding of the various hazards in the
context of emergency planning. The following encompasses both natural hazards being
those caused by the forces of nature, and anthropogenic hazards, those caused by human
activities. It is worth noting that while climate change is not listed as a hazard, climate
5
INTRODUCTION
change has the potential to affect and exacerbate multiple hazards and should be
incorporated into all emergency planning as relevant information becomes available.
Aircraft Accident
One or more aircraft either striking the ground, another aircraft or a structure, causing injury,
fatalities, destruction of property and/or forest fire.
Animal Disease
Three types: non-infectious, infectious, and parasitic diseases with the potential to spread
between animals and potential spread to humans.
Avalanche
Gravitational movement of snow and ice down a sloped surface that commonly results from
dense, wet snow falling on dry, loosely packed snow. Ambient temperature and wind
conditions are also critical factors.
Dam Failure
A crack or total breach in a dam resulting in excess water on the down-stream side of the
dam. The amount of water flow and associated damage will depend on the size of the dam
and the extent of the break.
Dangerous Goods Transport
Solids, liquids or gases that can harm people, other living organisms, property or the
environment. The transport of these goods may cause explosions, spills or contamination.
Debris Avalanche and Debris Flow
High velocity flow of mud, rocks, brushes, trees, and other debris propelled by torrential
rains.
Drought
Abnormal shortage of water, typically occurring throughout the summer months over an
extended period. Drought can cause crop failure, depletion of municipal water sources,
increase in forest fire risk and insufficient water flow through waterways.
Earthquake
Violent shaking of the earth’s surface accompanying movement along a fault rupture.
Seismic energy traveling in waves may cause damage to structures, generate tsunamis,
trigger landslides, liquefaction or other geologic events. There are three types of damaging
seismic categories which could affect British Columbia:
Crustal Earthquakes: typically, low magnitude ground movement occurring along faults at an
average depth of 10 – 20 km.
Sub-crustal Earthquakes: Occur at a depth of 30 – 70 km are produced by fracturing and
frictional slipping of preexisting faults along a tectonic plate.
Subduction Earthquakes: The most powerful type of earthquake, these occur when there is
a massive shift at the junction of multiple tectonic plates.
Epidemic and Pandemic
A pandemic refers to an epidemic that spans a large geographic area and can often become
a global situation. An epidemic is a situation where a disease affects many people in a given
area, resulting in illness and potential death.
Erosion and Sedimentation
Erosion is the weathering away of land through the action of natural forces and increases the
risk of slope failure. Sedimentation is the buildup of land by natural or artificial means,
increasing the likelihood of flooding.
Explosion and Gas Leak
6
INTRODUCTION
An explosion is the ignition of a flammable substance resulting in instantaneous combustion.

A gas leak can be caused ruptured pipelines or faulty valves and can potentially result in an
explosion.
Extreme Weather Event
Unexpected, unusual, unpredictable or unseasonal severe weather, which may include
blizzards, ice storms, lightening or snowstorms.
Blizzard: Combines low temperatures, blowing snow and wind with speeds ranging from 90
to 130 km/hour. Conditions are most severe in open or deforested areas where there are no
trees or structure to act as wind breakers
Ice Storm: A combination of high wind, rain, and freezing temperature creates freezing rain,
which adheres to roads, buildings trees, power lines and electrical towers causing structures
to collapse.
Lightning: Ascending moisture laden unstable air leads to the formation of thunderclouds
which transmit electrical charges of up to 100 million volts of electricity from cloud to cloud
or ground.
Snowstorm: The accumulation of several centimeters to meters of snow that covers roads
and infrastructure.
Flooding
Local flooding is an increase in water level associated with an extreme hydrological event,
such as record rainfall or poor / blocked drainage. Whereas, freshet flooding is an overall
increase in water level due to late spring event caused by the melting of snow pack.
Hail Storm
Precipitation in the form of ice balls of five millimeters of more in diameter. These ice
pieces are formed in the upper atmosphere when updrafts carry raindrops from storm
clouds into colder areas.
Hazardous Materials Accident – In-situ
Uncontrolled release of an explosive, flammable, poisonous, corrosive, reactive, or
radioactive substance on site or during transport that poses a risk to health, safety, and
property. Spills are classified in British Columbia as urgent (Code II) or Non-Urgent (Code I).
Code II Spills pose a threat that may require evacuation.
Heat Wave
Significant rise in ambient temperature above the mean for an extended period of time, or
by a combination of high humidity and lack of air motion.
Landslide
Down slope movement of soil, rock, and organic materials as a result of gravity.
Land Subsidence
Land subsidence occurs when a surface has been undermined and deformation and ground
movement occur, which may be caused by declining groundwater levels, aquifer system
compaction, drainage of organic soils, underground mining, hydrocompaction, natural
compaction and sinkholes.
Marine Accidents
Accidents that include collisions, groundings, strikings, explosions and fires, structural
failures, accidental spills of petroleum products or chemicals, loss of cargo and human
death or injury.
Plant Disease & Pest Infestation
Plant disease refers to pathogens such as viruses, bacteria and fungi that affect the health of
plants. Pest infestation refers to foliage or root feeding insects that damage plant life.
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INTRODUCTION
Power Outage
The extended loss of electricity delivery to homes and businesses.
Riot
A violent outbreak involving many individuals with either a common or random intent to
destroy property, assault persons or otherwise disturb the peace. Commonly, riots originate
from union picket lines, strikes or protests.
Rockfall
One or more rocks fall freely from a cliff edge or rock face.
Structural Collapse
When a building or structure collapses due to engineering or construction problems, metal
fatigue, changes to the load bearing capacity of the structure, human operating error or any
other cause such as earthquake, flood, fire, explosion, and snow or ice buildup.
Structure Fire
A fire that compromises homes, offices, factories and other structures.
Tsunami
A tsunami is a large-amplitude, low frequency wave, usually generated by a seismic event
that originates in the ocean, displacing the water above it. Three categories of tsunamis
threaten British Columbia: telegenic, local marine, and local terrestrial.
Telegenic tsunamis are remote-source; in the Bowen Island Municipality, this refers to
tsunamis generated at numerous locations generated along the subduction zones of the
Pacific Rim. Local marine tsunamis are caused by terrestrial and submarine landslides.
Water Contamination
Water contamination refers to bother dangerous bacteria found in drinking water as well as
intentional contamination of the water supply. These events have the potential to cause
serious health effects or illness.
Wildland Fire
Uncontrolled burning in a relatively unpopulated grassland, brush, or woodlands.
Wildland Urban Interface Fire (WUI)
Fires that have encroached on a developed and populated area.
8
BIM OVERVIEW
Bowen Island Municipality Overview

Bowen Island is located in Howe Sound, 6 kilometres west of mainland BC and accessed by
a 20-minute ferry ride that departs from BC Ferries Horseshoe Bay Terminal in West
Vancouver. There are also multiple foot-passenger only water taxis that depart from
Horseshoe Bay and downtown Vancouver to bring residents and visitors to Bowen Island.
The island itself is approximately 6 kilometres wide by 12 kilometres long, with a land area of
just under 50 square km.
Bowen Island has a permanent population of approximately 3,680 residents, 4 which has
grown 8.2% over 5 years, 5 and is a member of both the Islands Trust and Metro Vancouver.
The island experiences population surges during the summer months due to the arrival of
more than 1500 part-time residents and thousands of short-term and day-visitors. The
demographics and economy of Bowen Island are further discussed in the next section.
4
Statistics Canada, Census Profile 2016, Bowen Island Municipality.
5
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VULNERABILITY
Section 2: Vulnerability
Vulnerability is defined as people, property, infrastructure, industry and resources or
environments that are particularly exposed to adverse impact from an emergency or
disaster. This HRVA discusses four types of vulnerability: social, economic, environmental
and physical.
Social Vulnerability
Hazards such as wildland urban interface (WUI) fires, earthquakes, floods and human health
emergencies can have particularly serious impacts on vulnerable populations such as the
elderly and the young. In this assessment, social vulnerabilities reflect the degree to which
societies or socio-economic groups are affected by stresses and hazards that negatively
impact the social cohesion of the municipality. For the purposes of this HRVA, social
vulnerability is the ability of an individual within a household to recover from a hazard’s
impacts. This HRVA analyzes 3 potentially vulnerable groups based on age, language and
residency.
Language Groups
According to Statistics Canada, less than 1% of Bowen Island residents regularly use a
language other than English as a language first learned and still understood: the same is true
for languages used most often at work. 6 Language barrier challenges, therefore, are not likely
to be a significant problem during times of an emergency.
Age Groups
At the time of the last census, approximately 17% of the Bowen Island population was 14
years of age or younger; 7 which is higher than the provincial average of 14%, and the national
average of 16%. 8 Special considerations for these young individuals are relevant, particularly
if they are separated from their parent or guardian: as such, the number of students
expected to be at school on a given day are indicated below. Schools and childcare
facilities on Bowen Island include:
• Bowen Island Community School, 1041 Mount Gardner Rd. approx. 335 students 9
• Island Pacific School, 671 Carter Rd, approx. 65 students 10
• Island Discovery Learning Community, 889 Cowan Point Drive, 10-30 students,
depending on the day11
• Bowen Children’s Centre, 650 Carter Rd, up to 40 students and 20 drop- in families 12
• Bowen Island Montessori School, 587B Artisan Lane, 8-16 students 13
6
7
8
Statistics Canada, 2016.
9
Personal Communication, Jan 10, 2017, Scott Slater, Principle, Bowen Island Community School.
10
Island Pacific School. About Us. http://islandpacific.org/about-island-pacific-school/
11
Personal Communication, Aug 21, 2017, Allan Saugstad, Program Director, Island Discovery Learning Community.
12
Personal Communication, Nov 30, 2017, Sarah Winny, Bowen Children’s Centre.
13
Personal Communication, Jan 14, 2018, Helen Davenport, Bowen Island Montessori School.
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VULNERABILITY
The 2016 census also indicates that approximately 21% of residents are over the age of 65,
which is higher than the provincial average of 18%, 14 as well as the national average of 17%. 15
These statistics are relevant in times of emergency, as the elderly may face more challenges,
have greater needs, and require specialized attention. Specific challenges include
transporting older adults who use assistive devices, providing appropriate health services
and nutrition, meeting the needs of people with limiting conditions (such as hearing issues or
dementia), and respecting the emotional state of senior individuals who may experience
transfer trauma associated with sudden and unexpected relocation. A higher concentration
of seniors is present at Bowen Court, a seniors housing cooperative at 1070 Miller Rd; a new
seniors residence (Snug Cove House) is also currently under construction immediately
northwest of Bowen Court.
Non-Residents
Bowen’s scenic beauty, outdoor recreation opportunities and proximity to Vancouver make
it an attractive tourist destination. Tourists may not speak the language, be familiar with the
island, or know where to go for information in the event of an emergency. In the summer
particularly, there are likely to be a large number of tourists on the island, especially on
weekends. Gathering places and centres such as Rivendell Retreat, Orchard Recovery, local
marinas, the Snug Cove area and Artisan Square are likely to have higher concentrations of
non-residents.
It is worth noting that Bowen is used as a thoroughfare by an unknown but presumably small
number of individuals moving to other areas of Howe Sound. There are Pasley Islands
residents and property owners that use Bowen Island to get to and from the mainland; these
individuals use Bowen Bay to park their vehicles and travel from. Others come via boat to
work on Bowen from Gambier Island and the Sunshine Coast. These individuals may have
unique needs and interests in the event on an emergency that affects Bowen Island.
Economic Vulnerability
Disaster literature indicates that the loss of a major industry or employer as the result of an
emergency can lead to a reduced population, increase in foreclosed homes, and reduced
tax revenue in the affected community. Loss of property tax base associated with damaged
and destroyed housing and commercial real estate can have a longer-term impact on
operating budgets. Closure or relocation of major employers – and the loss of jobs with that
employer and with related/dependent businesses - directly affects the confidence of a
community to rebuild. 16
BC stats indicates that approximately 1342 people are employed on Bowen Island, and that
the majority of businesses on island are small with 1-4 employees, and only 3 island
businesses have over 50 employees. Many residents commute daily from the Island to other
areas of Metro Vancouver for work. Economy and employment within the Municipality are
dominated by home construction, tourism and local services, with construction employing
the largest share of the workforce; the value of the construction industry in 2014 was over 15
14
Statistics Canada, Census Profile 2016, British Columbia.
15
Statistics Canada, 2016.
16
Wemple, C. 2008. Challenges of Economic Recovery Following Natural Disasters – Insights Gleaned from
Hurricane Ike. Risk Institute.
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VULNERABILITY
million dollars. 17 Tourism is also a major economic driver on Bowen Island; there were 21,800
overnight stays in 2013. 18 There are multiple restaurants and accommodation providers,
ranging from single room bed and breakfasts to multi-unit commercial rental operations.
Environmental Vulnerability
Much of the local tourism industry is driven by the attraction to Bowen Island’s natural
surroundings; the island has municipal and regional parks and trails, crown land and
numerous wetlands within its boundaries, all of which are areas important to biodiversity
and of ecological value. The shoreline is also a sensitive area, susceptible to degradation as
a result of rising sea levels, as well as off shore hydrocarbon spills. Local water reservoirs are
also vulnerable to contamination, intentional or otherwise - these include:
• Josephine Lake (Cowan Point Utility)
• Honeymoon Lake (BIM)
• Grafton Lake (BIM)
• Eagle Cliff Reservoir (BIM)
Physical Vulnerability
Within this HRVA, critical facilities are defined as facilities that are essential to the
Municipality to carry out emergency response activities. However, it is important to note
that there are numerous critical facilities external to the Municipality that are essential in
order for outside agencies to support the Municipality in an emergency (e.g. Vancouver
BCAS dispatch, the EMBC Emergency Coordination Centre [PECC] in Victoria, the Joint
Rescue Coordination Centre [JRCC] in Victoria). The following is an analysis of critical
facilities and infrastructure on Bowen Island.
Critical Response and Recovery Facilities

The primary critical facility for coordination of a large-scale disaster or (non-routine)
emergency is the Municipality’s Emergency Operations Centre (EOC). Please see Section 4,
for more information regarding Bowen Island’s EOC setup. Before, during, and after an event,
the EOC is essential for site support, including the coordination of special resources,
information, multiple departments and external agencies. In addition to the EOC, emergency
first response facilities that are of critical importance to carrying out emergency response
activities include police, fire, ambulance, ESS reception centres, and other facilities. On
Bowen Island, these include:
Fire Hall #1 788 Grafton Rd

Fire Hall #2 (Primary EOC) 1421 Adams Rd
RCMP Station 1017 Miller Rd
BC Ambulance Station #225 1034 Miller Rd
Municipal Hall (Secondary EOC) 981 Artisan Lane
Public Works Yard #1 1060 Mount Gardner Rd
Public Works Yard #2 Athletic Park Rd
17
Bowen Island Municipality, Community Profile, 2016. http://www.bowenislandmunicipality.ca/community-
profile
18
Ibid
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VULNERABILITY
Response capabilities are discussed further in Section 3.
Critical Infrastructure
Critical infrastructure consists of those physical and information technology facilities,
networks, services and assets which, if disrupted or destroyed, would have a serious impact
on the health, safety, security or economic well-being of the Bowen Island Municipality or
the effective functioning of the government. According to Public Safety Canada, critical
infrastructure spans ten sectors: 19
1. Energy and Utilities (e.g. electrical power, natural gas, oil production and
transmission systems)
2. Communications and Information Technology (e.g. telecommunications,
broadcasting systems, software, hardware and networks including the Internet)
3. Finance (e.g. banking, securities and investment)
4. Health Care (e.g. hospitals, health care and blood supply facilities, laboratories and
pharmaceuticals)
5. Food (e.g. safety, distribution, agriculture and food industry)
6. Water (e.g. drinking water and wastewater management)
7. Transportation (e.g. air, rail, marine and surface)
8. Safety (e.g. chemical, biological, radiological and nuclear safety, hazardous materials,
search and rescue, emergency services, and dams)
9. Government (e.g. services, facilities, information networks, assets and key national
sites and monuments)
10. Manufacturing (e.g. furniture, glass, truck canopies)
With the exception of manufacturing, all sectors are expanded upon below.
Energy
Energy (electrical power) and fuel (diesel, gasoline, propane) are essential to day-to-day
operations within the Bowen Island Municipality to heat homes and businesses, cook and
preserve food, communicate through email, charge cellular phones, bathe and flush toilets,
and fuel equipment and vehicles. Without electrical power, fuel is required to maintain
many of the services that the municipality relies upon. The underwater BC Hydro supply
meets land on the east side of the Bowen Island at September Morn Beach (south of Dorman
Bay), and on-island infrastructure consists of overhead and underground distribution lines.
Access to fuels, both gasoline and diesel, is considered essential in day-to-day and post-
emergency situations. Fuel is vital for emergency response and heavy equipment vehicles,
generators, and for members of the community needing to fuel personal vehicles. As a
result, fuel is expected to be in high demand post-emergency; diesel in particular will be
required to operate most heavy-duty machinery. There are two large fuel distribution and
storage facilities on Bowen Island. These include:
Gasoline and Diesel Storage, Pubic Works Yard, 1060 Mount Gardner Rd
Gasoline and Diesel Storage, Bowen Fuels Station, 1062 Mount Gardner Rd
19
Public Safety Canada. 2014. Action Plan for Critical Infrastructure (2014-2017).
13
VULNERABILITY
It is necessary to note that if the ferry service is suspended or unavailable for any reason
post-disaster and the single fuel supply route is disrupted, there is a limited amount of fuel
available on Bowen Island. The possibility of bringing additional fuel to the municipality via
barge (into Snug Cove) exists, if fuel is readily available on the mainland, and a fuel truck for
transport can be secured. Of note, because both stored fuel locations on Bowen Island are
neighbouring, any emergency affecting or isolating that area of the island could exacerbate
the issue. Bowen Fuels, the only public-access fuel station, carries 5 different types of fuel:
Type Tank Capacity

Regular Gasoline 20,000 Litres
Premium Gasoline 7,000 Litres
Marked Gasoline 7,000 Litres
Regular Diesel 7,000 Litres
Marked Diesel 7,000 Litres
Bowen Fuels has at most 27,000 litres of unmarked gasoline at any given time, though in the
summer months they are likely to have far less, and occasionally run out of gasoline due to
high demand, despite once-per-week fuel delivery (Wednesdays). The fuel station does not
have the ability to pump fuel without power; in the event of a power outage, they hope to
borrow a generator to continue to operate. In the past, Bowen Fuels have borrowed a
municipal generator during power outages.
The Municipal Public Works Yard has two fuel storage tanks, one gasoline and the other
diesel, both of which have a 4,500 litre capacity. How often these tanks are refilled varies
seasonally, but averages once monthly, with more deliveries taking place in winter months
than during summer.
Privately owned Twin Island Excavating also stores diesel fuel at their quarry on Radar Hill,
and have up to 9000 litres of diesel fuel stored at any given time. 20 Privately owned Bowen
Building Centre stores propane: the 16,000-litre tank at 1013 Grafton Rd is filled to 100% in
November, and at other times of year is on average is approximately 50% full. This propane,
however, cannot be accessed during a power outage.
Communications
Television and radio broadcasting, as well as cellular and land line telephones, are
considered essential in emergency operations. Communications infrastructure is essential
for the Emergency Operations Centre, broadcasting systems, and front-line responders in
communities in the aftermath of a disaster. Communication is necessary for: assessing
damage and need; collecting information on supplies and other resources; coordinating
rescue and relief activities; accounting for missing people; and motivating public, political,
and institutional responses. It is important that communication infrastructure in a hazard
prone area be resilient with built-in redundancy.
North Shore Emergency Management and British Columbia Ambulance Service use
repeaters on Mount Gardner. The Bowen Island Fire Department, BC Hydro and the Coast
20
Personal Communication, Sept 5, 2017, Randy Arnott, Owner, Twin Island Excavating Ltd.
14
VULNERABILITY
Guard have facilities on Radar Hill. The Metro Vancouver Inter Municipal Emergency Radio
System (IMERS) has a UHF repeater on Mount Gardner (Channel 2C); given that (due to
topography) this is the only link from the Provincial Regional Emergency Operations Centre
(PREOC) to the Sunshine Coast Regional District, Squamish-Lillooet Regional District, Bowen
Island, Squamish and Lions Bay Emergency Operations Centres, this repeater is a vital part of
the communications back-up system.
Telus is responsible for the provision of telecommunications service to the Bowen Island
Municipality. Cellular towers are generally equipped with back-up power that will last 4-8
hours depending on usage. The Canadian Radio-television and Telecommunications
Commission (CRTC) noted that in 2016, more Canadian households had mobile phones than
landlines, more Canadian households subscribe solely to cellular than landlines, and that
subscriptions to wireless continue to increase year over year while landlines decrease. 21
This information will be relevant with regard to public communications if cellular
communication is not available.
Telecommunications and repeater towers atop Mt. Gardner on Bowen Island
Despite built-in redundancy, cellular phone failure in emergencies is not uncommon; most
often these failures are caused by the extraordinary demands placed on cellular networks.
Even if communication infrastructure is not damaged, the emergency provokes greater
communication by the public, the result of which is often a denial of service for all, including
emergency personnel. 22 Telus will strive to keep its equipment operational with primary
emphasis on vital communications infrastructure needed by the Municipality to respond
effectively to a major emergency. In addition, there is a satellite phone at the EOC, public
works has one and the Emergency Social Services Director has a personal satellite phone.
Both Shaw and Telus provide internet service to the island, with the Municipality relying on
Shaw for internet provision at its offices and facilities. Shaw has staff and vehicles on Bowen
Island, and prioritizes Snug Cove and Artisan Square for service restoration in an island-wide
21
Canadian Radio-television and Telecommunications Commission. 2016. 2.0 Canada’s Communication System:
An Overview for Canadians.
22
National Research Council. 2002. Making the nation safer: the role of science and technology in countering
terrorism. NY, United States of America: Committee on Science and Technology for Countering Terrorism.
15
VULNERABILITY
outage. Shaw’s generators rely on propane during a power outage. Amateur radio services
are also available and are discussed in Section 4.
Finance
There is only one financial institution on Bowen Island: First Credit Union, located at 106-996,
Dorman Rd. The Bowen Island branch of First Credit Union serves approximately 1800
members, and engages in business continuity and disaster recovery planning. 23 There is also
an automated teller machine (ATM) operated by Blue Shore Financial, located at 105-475
Bowen Island Trunk Rd.
Health Care
The Vancouver Coastal Health Authority provides services to the Bowen Island
Municipality. Bowen Island is included in Local Health Area #45 (West Vancouver-Bowen
Island), within North Shore/ Coast Garibaldi Health Service Area #33. There is no urgent care
clinic on island, however there are two private physician practices; one at 203-566 Artisan
Lane (Dr. Susanne Schloegl) open 4 days weekly, and one at 101-495 Bowen Island Trunk Rd
(Dr. Utah Zandy) open 1-2 days weekly. The BC Ambulance Community Paramedicine
program was introduced on Bowen in late 2017. This initiative will see 2 paramedics working
2 days per week on Bowen Island, with an aim to bridge health service delivery gaps in
collaboration with local primary care teams.
The Caring Circle Health Resource Centre is a Bowen Island based, non-profit organization
that provides health navigation services, delivers community programs, and maintains a
comprehensive list of Bowen’s extended health professionals in their Health Resource
Guide.
Pharmaceutical supplies are essential to the treatment of chronic medical conditions, acute
injuries, environmental exposures, and infectious diseases during emergencies. In post-
emergency situations, high demand is placed on pharmaceutical supplies. Medicines are
needed for the treatment of injuries and diseases as a result of emergencies, as well as
medicines for chronic illness that are often worsened by post-emergency conditions. 24
Bowen Island has one pharmacy, Cates Pharmacy, which is open 6 days per week and
located at 203-495 Bowen Island Trunk Rd.
Food
Emergencies can disrupt food supply and delivery resulting in food shortages. Groceries can
be purchased on island at the Snug Cove General Store and the Ruddy Potato Whole Foods
Market, and prepared food can be purchased at one of many island restaurants. The General
Store grocery food supply is roughly 2-4 days for perishables, and 1-2 weeks for non-
perishables, under normal consumption. 25 There are also several small farms that produce
seasonal goods on island, and these farms, combined with the restaurants (approximately 8),
could potentially increase the amount of available food. Emergency rationing could also
make the limited supply last longer. Due to the isolated nature of the Municipality, any
disruption in ferry service could quickly lead to food shortages.
23
Personal Communication, Aug 16, 2017, Kevin Manning, Manager (Bowen Island), First Credit Union.
24
Jhung, M. 2007. Chronic Disease and Disasters Medication Demands of Hurricane Katrina Evacuees. American
Journal of Preventative Medicine. 33(3): 207-10.
25
Personal Communication, Snug Cove General Store, Aug 21, 2017.
16
VULNERABILITY
Water
Safe and accessible water for drinking and sanitation is imperative to the health and well-
being of the residents and visitors within the Bowen Island Municipality. According to Public
Safety Canada, approximately 206,080 litres of water is needed to sustain Bowen Island’s
population of 3680 for 14 days. 26 This amounts to four litres per person per day for the two-
week duration. The Municipality’s current water supply consists of both municipal and
private water sources.
Municipal Water
The Municipality is responsible for provision of water to approximately 1500 properties; of
these, approximately 1100 are active users. Census data from 2016 indicates that there are
1915 private dwellings on the island; the municipality thus provides water for approximately
57% of Bowen’s households. 27
The municipality operates 7 water systems across the island, and has enough backup
generators to ensure that all systems can be maintained without hydro, if diesel fuel is
available. The Municipality can continue to provide water to all homes on the municipal
system in the event of a power outage, assuming there is no damage to infrastructure and
that municipal staff are available, for as long as fuel is available. In the event of disruption to
multiple systems, restoration of water supply is likely to be prioritized based on the number
of users on the system.
Water System Approx. number of active users

King Edward Bay 19
Bowen Bay 60
Hood Point 89
Eagle Cliff 98
Tunstall Bay 128
Bluewater Park 142
Cove Bay (includes Valhalla and Cates Hill) 630
Non-Municipal Water
There are approximately 11 non-municipal water systems; 28 it is unknown how many total
users are on these systems. The largest non-municipal water system is Cowan Point Utility,
which has approximately 89 connections. 29 There are backup diesel generators on site at
both the pump-house and the treatment plant for this system, and thus users could continue
to access treated water in the event of a power outage. As well, this pump could
theoretically pump untreated water directly from the local lake in the event of infrastructure
damage to the water system. Most of the remaining homes on Bowen are serviced by
individual wells or groundwater supplies. The island has 7 distinct aquifers, the majority of
which (5) are deep fissure.
26
Canada Department of Public Safety and Emergency Preparedness. 2015. Frequently Asked Questions.
https://www.getprepared.gc.ca/cnt/rsrcs/faq-en.aspx#a02
27
28
Wiltshire House Publishing. 2017. Bowen Phone Book, page 7.
29
Personal Communication, June 15, 2017, Larry Adams, Cowan Point Utility.
17
VULNERABILITY
Transportation
During and after an emergency or disaster, transportation is an essential component of
effective emergency response and recovery. Bowen Island is accessible via water and air
transport. Due to the dependency of the community on the water and water-based
transportation, climate change, including rising sea level, poses a threat to critical
community infrastructure and should be monitored and accounted for in planning.
BC Ferries operates 14 daily roundtrip sailings between the Horseshoe Bay and Snug Cove
terminals, with a one-way trip lasting 20 minutes. Water taxis (for passengers) and barge
service (for freight, fuel and supplies) are available locally, both on Bowen Island and
throughout Howe Sound. The municipality maintains 2 public boat docks on Bowen Island,
one at Mount Gardner and one in Snug Cove; there are also many private docks around the
island. Numerous access locations for water taxi service exist both on the island and the
mainland. Small barges are typically brought into the Snug Cove boat ramp, which is
operated by the Union Steamship Company Marina, though there are also two unmaintained
boat launches, one at Sandy Beach (just north of Snug Cove), and one at Tunstall Bay (West
side of island) that could potentially be utilized as barge landing sites in an emergency.
Air transport is via helicopter (weather dependant) or floatplane (seasonal). Float plane
travel, both private and chartered, is available from Vancouver to Snug Cove on a regular
basis during summer months. Bowen Island has no Transport Canada approved helipads,
however numerous helipads and helicopter landing sites exist across the island, including
the Coast Guard helipad and rock quarry on Radar Hill, which has been used in the past by
the RCMP. BC Ambulance helicopters will not land on Bowen at night, however during the
day these helicopters may land at either the golf course and at the Snug Cove Picnic Area in
Crippen Park (the “Bowfest Field”).
The Municipal Public Works department is responsible for the operation, maintenance and
construction of the Municipality’s roads. Most of Bowen Island’s roads, with few exceptions,
are terminating, meaning sub-communities are not connected by more than one main
thoroughfare. The consequences of these sub-communities becoming isolated may include
difficulty receiving medical attention, inability to communicate for assistance, dependence
on stored supplies, and delays in fire response. Priority roads include Bowen Island Trunk,
Grafton, Adams, Miller, Eagle cliff, Bowen Bay. Only 3 bridges are part of the municipal road
network, located on Carter Rd, Arbutus Bay Lane and Cape Lane.
Public transportation options are limited within the municipality. First Transit is the service
provider for TransLink’s Community Shuttle buses on Bowen. They are reachable in the
event of an emergency on Bowen Island and will provide driver(s) as needed for emergency
transportation and/ or as a shelter coach as officially requested by the Bowen Island
Municipality. 30 There are also private transportation providers on island, including a taxi and
private bus company.
30
Personal Communication, May 23, 2017, Norm Fraser, Manager, Coast Mountain Bus Company.
18
VULNERABILITY
Safety
There are several organizations that work to provide safety to residents and visitors within
the municipality. Bowen Island Volunteer Fire Department, the Royal Canadian Mounted
Police, BC Ambulance Service, North Shore Search and Rescue and other organizations are
critical to the safety of the municipality in day to day operations and in emergency
situations. A more detailed description of each is provided in Section 3.
Hazardous materials are located at various locations within the municipality with major
holdings at the Bowen Island Gas Station and the Bowen Building Centre. B.C. Ferries
provides dangerous cargo sailings every Wednesday. Propane and fuel are delivered by
truck to all locations on the island. Due to the limited number of significant HazMat
locations, dangerous goods transport is not a primary concern for the municipality.
CANUTEC, the Canadian Transport Emergency Centre of the Department of Transport,
does not respond on site, but does offer communications and data support.
Government
Emergency situations can have a catastrophic impact on a government’s day-to-day
business operations. Governments deliver critical services including protection of persons
and property, local transportation, utilities, information, networks and assets, and more.
Governments must ensure that these essential functions can continue during and after an
emergency. In an emergency, the Municipality will establish an Emergency Operations
Centre (EOC) to help support the site and coordinate the response. Provincial and Federal
Governments also establish EOCs on an as needed basis, to support local government
EOCs. In addition to emergency and EOC planning, the Bowen Island Municipality should
develop Business Continuity Plans to ensure that essential business functions within the
Municipality are continuously delivered without interruption, or are re-instated post-
emergency, as soon as possible.
19
RESSPONSE ORGANIZATIONS
Section 3: Response Organizations

Fire and Rescue
Bowen Island is supported by the local volunteer fire department which provides fire
prevention, suppression and first responder medical and rescue service. Bowen Island Fire
Hall #1 is located at 788 Grafton Road. The Satellite Fire Hall (#2) is located at 1421 Adams Rd.
There are twenty-eight (28) trained and equipped volunteers present in the department, as
well as a full-time Chief, a part-time (14 hours) Deputy Chief, and a part-time (7 hours)
Assistant Chief/ Training Officer. Current apparatus inventory can be found in Appendix B.
In addition to these apparatus, Metro Vancouver has a cache of fire suppression supplies in
Crippen Park that could potentially be made available.
Bowen Island Fire Hall #1 located at 788 Grafton Road
The fire department uses the IAmResponding™ emergency responder reply system, and
members are dispatched through the Surrey Fire Communications Centre at 13450-104
Avenue in Surrey. The repeater for the Bowen Island Fire Department is located atop Radar
Hill. The department utilizes FireStation software for records management.
Seismic upgrading of the fire hall, increasing room for training and storage, and expanding
EOC operations have been discussed as priorities for the department. Given the availability
of resources and the age of the hall (built 1969, expanded 1977), the construction of a new
hall (expected to begin in late 2017 on Miller Road) will solve these important issues.
At present, firefighter turnout gear is stored at fire hall #1; all firefighters respond to calls
from this hall. Fire hall #1 has a 250 gallon backup diesel generator which is useful during
power outage events; this supply will provide light, communication, heat and air compressor
capabilities for at least two weeks (running 24/7).
20
Fire hall #2 (the satellite hall) was built in 2012 in order to house Tanker 30, and provide
outdoor training space. The tanker was purchased to provide fire protection to areas
without hydrants, primarily on the west side of the island. The satellite hall also houses the
wildland fire trailer. The satellite hall is approximately 2650 square feet, and is equipped
with a 1000-gallon propane tank (filled weekly) used to run the generator, which will pump
water and provide communication, light and heat when needed. The satellite fire hall is
currently designated as the municipality’s primary EOC, and is equipped with a
communications room.
Bowen Island Fire Hall #2 (satellite hall) located at 1421 Adams Road
Police
The Bowen Island Municipality is served by Bowen Island RCMP detachment located at 1017
Miller Road. The detachment falls under the Sea to Sky Regional Police Services located in
Squamish. There are currently three full time regular members and one civilian clerk serving
at this detachment. There are currently two other RCMP members who live on Bowen
Island and are available if needed to serve in an emergency. 31
Bowen Island RCMP Detachment located at 1017 Miller Road
31
Personal Communication, June 11, 2017, Corporal Paulo Arreaga, Bowen Island RCMP Detachment.
21
Ambulance
Emergency medical service on Bowen Island is provided by the British Columbia Ambulance
Service (BCAS) station #225 located at 1034 Miller Road, which is dispatched by the
regional 9-1-1 system; the regional dispatch is the Vancouver Communications Centre
located at Suite 301 – 2955 Virtual Way in Vancouver. The repeater for BCAS is located on
Mount Gardner. There are 2 paramedics “on call” 24 hours a day, 7 days a week, 365 days a
year. The on-call crew may or may not be physically at the station at all times. The members
are made up of both local responders and off-island paramedics who travel to and stay on
Bowen to fulfill their shifts. While on call, each paramedic carries a pager and meets at the
station to respond with the ambulance when a is call dispatched. The patient is then
transported along with the paramedics by water taxi to Horseshoe Bay where another
ambulance and crew will take the patient to the hospital. The Bowen paramedics then
return to the island by water taxi. 32
BCAS station #225 located at 1034 Miller Road
Search and Rescue

The coordination of volunteer ground search and rescue is undertaken by EMBC, who
provide support for Search and Rescue (SAR) groups through funding, training, etc. For SAR
response, Bowen Island is supported by North Shore Rescue, who are aided as necessary
through mutual aid agreements with other SAR teams, for example Lions Bay. These groups
are usually activated at the request of the RCMP or the Bowen Island Fire Department, and
supported during response by EMBC through a task number. SAR groups do not operate on
or in the ocean (Canada Coast Guard conducts SAR on the ocean), but respond to land and
inland water rescue and recovery requests. The North Shore Rescue team performs
approximately 130 search and rescue operation per year, and has responded to various calls
on Bowen, including 1 in 2016 for an injured patient. 33 In some cases, the Bowen Island Fire
Department engages in SAR activities due to the isolated nature of the island, and the time it
takes for SAR groups to arrive when not transported by helicopter.
32
Personal Communication, July 5, 2017, Janis Treleavan, Paramedic, BCAS.
33
Personal Communication, June 14, 2017, Peter Haigh, Search Manager, North Shore Rescue.
22
EMERGENCY SUPPORT AND PREPAREDNESS ORGANIZATIONS
Section 4: Emergency Support and Preparedness

Organizations
In addition to primary response organizations, the Bowen Island Municipality utilizes a
number of organizations and programs to prepare for and support response and recovery in
an emergency or disaster. The Municipality may also draw on the resources of several
external organizations. In addition to those listed below, supporting resources are also
available from both provincial and private sources. This includes the Southwest Provincial
Regional Emergency Operations Centre (PREOC) which is located in Surrey, and various
private sources within the Municipality.
Bowen Island Municipality Emergency Program

In May 2017, council passed “Bowen Island Municipality Emergency Program Regulatory
Bylaw No.428, 2016,” which established the BIM Emergency Program. The program, which
plans for the response to and recovery from emergencies and disasters in order to help
protect the health and safety of Bowen Island residents, consists of two committees and a
part-time Emergency Program Coordinator.
The Emergency Program Executive Committee meets at least once annually, oversees the
emergency program and provides strategic direction and oversight to the Emergency
Program Management Committee and Emergency Program Coordinator. The Emergency
Program Management Committee meets more frequently and is responsible for planning
the Emergency Program. The Emergency Program Coordinator is responsible for the overall
management and coordination of emergency preparedness, response and recovery and for
developing an emergency program for the municipality.
In addition to this HRVA, the municipality has a 2007 Community Wildfire Protection Plan,
which includes background on which areas of Bowen Island are at the greatest risk of
wildfire and recommendations for fire disaster resilience, as well as the 2007 BIM
Emergency Management Plan, which provides municipal actors and stakeholders with
emergency response guidelines. Operational guidelines from the province of BC for
evacuation, declaration of a state of emergency and emergency operations centres are also
resources in the event of an emergency.
Emergency Operations Centre (EOC)

Due to the topography of Bowen Island, there are primary and secondary EOCs established
in two main areas within the Municipality - providing flexibility for setup depending on the
geographic origin of the hazard. The primary EOC is the better equipped of the two, with a
communications room, satellite phone, display boards and EOC equipment. Table 2
summarizes the current EOC locations; these are scheduled to change in 2018, upon
23
completion of the new Fire Hall and EOC at Miller Rd. For more information on EOCs, see the
BIM Emergency Management Plan.
Table 1 – Emergency Operations Centre Primary and Secondary Designations, 2017
Designated Building Address Details

Primary EOC: 250 sq ft EOC; hall has
Bowen Island Fire Hall #2, Satellite Hall backup power, a satellite
Fire Hall #2 1421 Adams Rd phone and a
Bowen Island, BC communications room
(Fire hall #1 will become V0N 1G2 including a VHF base
primary once completed) station and portable radios.
Secondary EOC:
Bowen Island Bowen Island Municipal Hall
Municipal Hall (Fire hall #2 981 Artisan Lane No backup power supply
will become secondary Bowen Island, B.C. available
once Fire Hall #1 is V0N 1G2
completed)
Public Works Department

The Public Works Department is responsible for infrastructure including roads, bridges,
docks, sewers and water systems. Ideally, a senior Bowen Island Public Works
representative will assume the role of EOC Operations Chief during events, such as a flood
or snowstorm, that require Public Works as the lead agency. Specific responsibilities may
include: EOC staffing, road clearing, managing traffic, alleviating water disruption issues,
sewage services, spill containment, vehicle supply, building security, garbage/debris
management and equipment supply.
Parks and Environment Department

The Parks and Environment department builds and maintains municipal parks, trails, beach,
beach accesses, playing fields and open space. The department also reviews and responds
to development proposals, works with conservation stakeholders to preserve the integrity
of terrestrial and marine ecosystems, and takes part in climate change initiatives. The
manager of this department is also responsible for actively enforcing environmental and
administrative by laws. Ideally, a senior Parks and Environment representative will provide
technical environmental advice in an EOC. In the past, this department has been called upon
to respond to small off-shore hydrocarbon spills that threaten the shoreline; employees in
both the Parks and Environment and Bylaw departments have undertaken EOC training.
Specific responsibilities may include: EOC staffing, managing traffic, spill containment,
vehicle supply and equipment supply.
24
Bowen Island Public Notification System (BowENS)

In 2017, BIM purchased a software license for an public notification system for a term of 3
years. The opt-in system is intended to communicate with the public in an emergency, and
has geographic information system as well as 2-way communication capabilities. The
system will also be used for internal communications to various groups, including mayor and
council, the EOC team and the Emergency Support Services Team. As of the end of 2017,
over 900 residents were enrolled, or nearly 30% of the island’s adult population. A policy has
been created outlining acceptable and intended use of the system, which is available
through BIM.
Amateur Radio
Bowen Island Municipality has an Emergency Communications Team (ECT) made up of
amateur radio operators, who are based out of Fire Hall #2. The ECT primarily use VHF UHF
radios and are able to communicate across all areas of the island, as well as with all 7
PREOCs. The team also participates in the Inter-Municipal Amateur Radio Service (IMARS),
which joins all jurisdictions of Metro Vancouver. An amateur radio club (BEARS) is also
present on island, and would likely mobilize to some extent in the event of a large-scale
emergency that disrupted standard methods of communication.
The ECT works closely with North Shore Emergency Management’s Emergency
Communications Team, which will be useful in establishing connections with nearby
stakeholders, including high schools that Bowen resident youth attend. Of note, the ECT has
the ability to email via radio, and would provide IT services in an emergency that does not
affect standard communication methods.
Emergency Support Services

Emergency Support Services (ESS) provides short-term (72 hours) assistance to people
forced to evacuate their homes due to an emergency, stranded travelers and first
responders. Food, lodging, clothing and reunification are the primary services offered by
ESS, as well as first aid, child and pet care, emotional support, etc. Bowen Island ESS
maintains a webpage on the BIM website, which includes the ESS plan; the current Director
is a volunteer, who works an average of 10-15 hours weekly.
Reception Centres are locations designated by the local ESS team as safe gathering places
for people displaced from their homes by an emergency. At a Reception Centre, individuals
can register and receive Emergency Support Services as well as information about the
emergency. Currently, 9 potential reception centres have been identified on Bowen Island;
the most up to date list can be found on the BIM webpage.
Neighbourhood Emergency Resource Persons (NERPs)

An established group of volunteers known as Neighbourhood Emergency Resource Persons
has been in existence on Bowen since the early 1990s. Volunteers collect information
regarding members of and resources in the neighbourhood that could prove useful, and
disseminate information to their neighbours in the event of an emergency or evacuation.
Work continues with NERPS assisting in creating household contingency plans, improving
independence during times of emergency and various other emergency preparedness
endeavours.
25
Section 5: Priority Hazards Overview
The results of this HRVA identify priority hazards, which are those that exceed the risk tolerance
boundary of 28 and are of the highest priority for mitigation. For Bowen Island, these hazards
include earthquake, structure fire, wildland urban interface fire, epidemic and pandemic, rockfall,
marine accident and extreme weather event/ power outage. This section details and evaluates
these hazards, which are discussed in order of risk ranking: refer to the Risk Quantification Index in
Appendix A for specific scores, and to Appendix D for a consolidated list of recommendations.
All Hazards Recommendations

Many of the recommendations below apply to a number of different situations and potential
scenarios. The following common themes have emerged, and attention to these areas will assist
BIM in preparing for all hazards and disasters.
Municipal Readiness
Encouraging personal preparedness for staff and municipal volunteers will help to ensure that the
municipality is able to assist first responders and serve residents quickly during or after a disaster.
As well, BIM should engage in business continuity planning so as to be better able to provide
services during emergencies.
The municipality should also consider investing in backup power supplies for municipal offices,
and to follow recommendations of the Fire Chief and other subject matter experts when
constructing new municipal buildings. Finally, BIM should continue to support ESS, NERPs and the
Emergency Communications Team, as these volunteers are critical to the emergency program.
Outreach and Education

Educating residents about what they can do to better prepare for an emergency will help to
ensure that BIM is able to recover from a disaster. This includes education around Fire Smart
principles, personal emergency preparedness, neighbourhood emergency preparedness, and
secondary heat, power and water sources. Encouraging local businesses to engage in business
continuity planning would also contribute to a resilient community. ESS and the NERPs can assist in
spreading these messages.
Evacuation Planning
The presence of multiple terminating roads means that the potential for evacuation by water of
parts of the island is a reality. As well, while the likelihood of an island-wide evacuation is low, the
multiple challenges that would be posed by an island-wide evacuation make evacuation planning
important to emergency preparedness on Bowen Island. The municipality should engage in formal
evacuation planning, including drafting and exercising an Evacuation Plan. Evacuation planning will
also prove useful in re-supplying areas where residents are sheltering in place and isolated from
Snug Cove.
Priority Hazards
Earthquake
The potential for an earthquake to affect the Bowen Island Municipality is ever-present, and the
magnitude of a major quake will likely cause significant damage. Earthquakes may cause a number
26
of phenomena, including ground motion, surface faulting, ground failure and liquefaction. An
earthquake’s magnitude reflects an earthquake’s strength, with damage to buildings generally
beginning to occur at a magnitude of six (Richter scale). Experts have estimated that there is a 12%
probability of a catastrophic earthquake (resulting in a high number of causalities and injuries and
extensive infrastructure damage) affecting BC in the next 50 years. 34
Bowen Island is situated between Vancouver Island and the mainland of British Columbia in the
Cascadia Subduction Zone. In this zone, the Juan de Fuca plate is moving towards North America
at about 2-5 cm/year and subducting under the much larger North American plate. There is solid
evidence that these two plates are locked together now, causing much strain in the earth’s crust to
build up. In addition to the ~300 earthquakes that occur in south-western BC each year, it is
predicted that these colliding plates will snap loose generating a huge subduction earthquake,
potentially over the magnitude of nine on the Richter scale. 35
Due to the relative isolation of many homes on Bowen Island and the isolation of the island itself,
the effects of a major earthquake on residents will be significant. Isolation is a legitimate concern
with the potential for road damage occurring, for example. Bowen Island has many terminating
roadways, with sub-communities not connected by more than one main thoroughfare.
Consequences of isolation may include: difficulties receiving medical attention, inability to
communicate for assistance, dependence on stored supplies, and delays in fire response.
Transport via water access could also be affected during a major earthquake with the potential for
wharf damage. Downed infrastructure such as power and phone lines (which has historically been
a problem), could also add to increased isolation during a seismic event, introducing
communication barriers. Structural damage to homes is a major concern in some localities (such as
the Eagle Cliff area) during a major earthquake. Many houses are built on steep slopes, with the
potential for corollary effects of a rockfall causing additional problems. Given the vulnerability of
Bowen Island’s structures and residents to a seismic event, and the issues of isolation that exist, an
earthquake is considered a priority hazard for the municipality.
Recommendations
1. Continue to advance the Neighbourhood Emergency Resource People (NERP) program, in light
of the fact that immediate assistance post-earthquake is most likely to come from neighbours,
and continue to promote independence, earthquake safety and emergency survival kits (e.g.
Grab ‘n’ Go bags) for the home, car and workplace.
2. Ensure new municipal structures and key infrastructure meet at least minimum seismic design
and loading requirements, particularly infrastructure and response facilities (e.g. new fire hall,
community centre) that will be critical during and after a disaster.
3. Seek funding for earthquake specific planning, including an earthquake immediate response
plan and a rapid damage assessment plan, to guide municipal activity post-earthquake.
Structure Fire
In the Bowen Island Municipality, structure fires occur on average twice annually. 36 The risk of
structure fire in the community extends from the ignition source to neighbouring structures due to
the vegetative and forest characteristics of the island. Although FireSmart principles have been
34
Office of the Auditor General of British Columbia. March 2014. Catastrophic Earthquake Preparedness.
35
Natural Resources Canada. 2017. Seismic Zones in Western Canada.
http://www.earthquakescanada.nrcan.gc.ca/zones/westcan-en.php#Cascadia
36
Personal Communication, Sept 28, 2017, Ian Thompson, Fire Chief.
27
communicated to residents in the past, the structural ignitibility of many homes is quite high,
especially aged structures.
Main concerns when discussing structure fire vulnerability are isolation and means of access
through the municipality. Response to isolated areas and property with steep topography can be
difficult, but Bowen does have a good range of apparatus to assist in dealing with these factors.
Multiple homes that are in close proximity to one another also introduce the potential for spread
during a structure fire incident, such as in the sub-communities of Snug Cove, Tunstall Bay, Bowen
Bay, Deep Bay and Eagle Cliff. Minimizing losses and preparing the public through FireSmart
principles are important themes that overlap with those discussed in the next section concerning
Wildland-Urban Interface fire.
Recommendations
4. Strive for Exterior and Interior Operations Service Level competency as per the British
Columbia Fire Service Minimum Training Standards Structure Firefighters Competency and
Training Playbook for Bowen Island Fire Department members.
5. Continue to provide informational assistance to residents where needed to empower locals
and reduce the potential for structure fires, for example recommending that residential
sprinkler systems are installed in all new home construction.
6. Follow recommendations of the Fire Chief in construction of municipal buildings.
7. Update the 1993 Bowen Island Fire Protection District Bylaw No. 41 to reflect current
conditions and to empower Bowen Island Municipal staff to enforce fire related bylaws.
Wildland Urban Interface (WUI) Fire

Abnormally hot, dry weather and excessive fuel loading often make forest areas particularly
vulnerable to lightning strikes and human carelessness. Once burning, a forest fire can spread
quickly due to high winds and easily overwhelm the capacity of local response agencies. Aside
from the environmental and economic impacts, fires become particularly devastating when they
encroach on human settlements and critical infrastructure. When this occurs, they are considered
Wildland Urban Interface (WUI) fires and can be extremely destructive.
The British Columbia Firestorm of 2003 made the risk of WUI fires clear to communities across
British Columbia, when over 2,500 fires burned throughout the interior of the province causing the
loss of 344 homes and businesses and the evacuation of 45,000 people. Approximately 260,000
ha of forest were destroyed, and the total cost of the Firestorm was estimated at CAD $700
million (Filmon, 2003). More recent wildfire events such as the evacuation of Fort McMurray,
Alberta in 2016 and the unprecedented wildfire season in British Columbia in 2017 make this a
particularly salient issue.
28
Many residential dwellings on Bowen Island are surrounded by dense forest and low-lying brush,
increasing the vulnerability to WUI fire spread
While Bowen Island has not experienced a major interface fire in recent years, experts
acknowledge the potential vulnerability to WUI fire in certain areas around the island: overall, BIM
is classified as having a “moderate to high fire risk profile, described by a moderate to extreme fire
probability and moderate consequences based on the values at risk.” 37 Adding to the vulnerability
of residents is the growth of Bowen Island’s population and the influx of summer residents and
tourists, as beach fires and campfires during fire season in vulnerable areas may increase with
visitor fluctuations.
Additional concerns regarding WUI fire on Bowen Island involve the reach of fire hydrants and
steep topography in specific areas that do not lend themselves to ease of attack. Local experts
have also highlighted the isolation and evacuation problems in relation to a potential WUI fire.
With terminating roads branching out from a central location on the island, residents potentially
being trapped is not an unrealistic possibility. The promotion of FireSmart principles by the
Bowen Island Fire Department has been active in the past; this is one activity that should continue
to educate residents on the options available to them.
Recommendations
8. Continue with FireSmart communication goals around the community, including the
dissemination of information through brochures, public events, the BIM website and social
media to raise awareness. The Union of British Columbia Municipalities Strategic Wildfire
Prevention Initiative FireSmart Planning Grant Program is a potential source of funding for
FireSmart initiatives.
9. Seek funding to update the 2007 Community Wildfire Protection Plan, conducted for the
Municipality to mitigate the potential impact of a major wildland fire event on the island.
10. Engage in evacuation planning to address the unique needs associated with evacuating an
island and evacuating neighbourhoods with single accesses.
Epidemic and Pandemic

Yearly epidemics cause serious illness and death, especially among those who have weakened
immune systems due to age or underlying medical conditions. A pandemic is an epidemic that
affects a very large geographic area and is often global. Influenza is a common infection that
affects large numbers of people annually.
Among the general population, influenza is recognized as a very uncomfortable, self-limiting, but
ultimately benign illness. However, occasionally the virus mutates and becomes much more
dangerous to humans. The last 100 years has seen three occasions of worldwide pandemic
outbreaks of severe influenza. The worst of these pandemics was the infamous Spanish Flu of 1918
which killed an estimated 20 to 40 million people around the globe – more than the casualties of
the First World War. The Spanish Flu of 1918 is considered to be the most devastating pandemic in
world history. According to the BC Centre for Disease Control (BCCDC), pandemics occur every
37
BA Blackwell and Associates Ltd. April 2007. The Municipality of Bowen Island Community Wildfire Protection Plan.
29
10 to 40 years. 38 With today’s global transportation networks, the potential for a rapidly spreading
pandemic is high.
The BCCDC estimates that more than 3 million British Columbians will become infected with the
next influenza pandemic, with 15 to 35 per cent becoming clinically ill. 39 These estimates are not
worst-case scenarios, but are based on the impacts of the 1957 and 1968 pandemics, which were
relatively mild when compared to those of the 1918 Spanish Flu. Actual rates of the next pandemic
may be significantly higher, and it should be noted that disease agents other than influenza, such
as Severe Acute Respiratory Syndrome (SARS), may also be the cause of a pandemic.
Due to the unusually high number of hospitalizations during a pandemic, local health authorities
will likely be overwhelmed. Municipalities should work with local health authorities to create
contingency plans on how they will handle the surge in patients. In addition, municipalities will
need to continue providing essential services and support to residents. As employees of the
Municipality may also become infected and be unable to work, continuity plans to operate with a
reduced workforce are also required.
Due to the geographic characteristics of Bowen Island, the disease may be detected in urban
centres (i.e. Vancouver) before it arrives in the Municipality. This may provide some advanced
warning to the Municipality; however, this should not be relied upon, especially during high season
for visitors. Avian influenza has recently become an increased concern for many, especially in
areas with significant poultry farming operations. The H5N1 strain of the Avian Influenza is one of
sixteen (16) varieties of the virus, the only one that has shown ability to pass from one human to
another. Migration of the bird flu is likely to occur through Canada, possibly affecting western
Canada including Bowen Island. Given the current risks associated with influenza outbreaks, the
risk of an epidemic or pandemic to Bowen Island is considered a priority hazard.
Recommendations
11. Engage in continuity planning so as to be able to continue to offer essential municipal services
during times of reduced workforce.
12. Promote continuity planning for local businesses who will likely be most affected, particularly
those providing critical services (gas station, grocery stores).
13. Remain up-to-date and utilize useful pandemic resources, such as local government guidelines
within the Vancouver Coastal Health Regional Pandemic Outbreak Response Plan (2015) and
the British Columbia Pandemic Influenza Preparedness Plan (2005).
Rockfall
When a rockfall incident occurs, it can block roadways, cause damage to property and affect
people and infrastructure within the Bowen Island Municipality. Due to the climate and
topography of the island, coupled with proximity of steep slopes to main thoroughfares, the
potential for rockfalls to affect the BIM is significant. Specific areas of concern on the island
include the Eagle Cliff area, as mentioned previously, with homes potentially at risk from rockfall.
38
BC Centre for Disease Control. 2018. Communicable Diseases. http://www.bccdc.ca/health-info/outbreaks-
emergencies/communicable-diseases
39
BC Ministry of Health & BC Centre for Disease Control. 2005. British Columbia Pandemic Influenza Preparedness Plan.
http://www.bccdc.ca/resource-gallery/Documents/Epid_Guidelines_PandemicPlan_20090609.pdf
30
Rockfalls have occurred in the past on Bowen Island, temporarily blocking access to different
areas on the island. Although this has occurred, the duration of the debris blocking an area has not
exceeded six hours. 40 Nonetheless, rockfalls remain a concern – aside from the Eagle Cliff area,
between 679 and 823 Taylor Road in the Queen Charlotte Heights area as well as Woods Road are
potentially vulnerable. 41
Recommendations
14. Seek geotechnical expertise where necessary to confirm hazard hotspots, particularly where
houses and infrastructure are at risk.
15. Utilize and act upon third party assessment where it is deemed a priority to mitigate rockfall
hazard. This may include the introduction of fencing, terraced barriers or other rockfall
mitigation measures.
Marine Accident
The Strait of Georgia is a very active area in terms of vessel traffic, especially with BC Ferries in
operation between the Lower Mainland, Vancouver Island and the Gulf Islands. Howe Sound is
also an active area, and marine accidents in either body of water could have local or widespread
environmental and economic impacts. All levels of government have a role in managing coastal
shores; generally, the Federal government is responsible for off-shore waters, the Province for the
foreshore and the municipality for the nearshore. As such, any response to a marine accident is
likely to involve multiple levels of government and many different agencies. For the purposes of
this HRVA, marine accident includes both water based hazardous materials spills, as well as
marine infrastructure damage.
Hazardous Materials Spills

The greatest marine threat to Bowen Island is pollution caused by spillage or vessel collision in the
Strait of Georgia or Howe Sound. Oil spills, depending on their size and area, could have a serious
impact on the community in a socio-economic and environmental sense. The extent of this
impact depends on the substance released, the amount and proximity to inhabited areas,
prevailing wind and tidal conditions. The spillage of some dangerous goods may require
evacuation of coastal communities due to toxic fumes. The Bowen Island Municipality has
experienced extended delays in waiting for a response from other levels of government to small
fuel spills off-shore that threaten the shoreline, particularly in Mannion Bay. 42
Infrastructure Damage
As noted in Section 3, the Bowen Island Municipality is served by BC Ferries, which operates
multiple daily roundtrip sailings from Horseshoe Bay to Snug Cove. Bowen Island’s ferry
infrastructure is critical to the local economy, for re-supply purposes and in the event of an
evacuation. An accident involving the commuter run also has the potential to put numerous
passengers and crew at risk. Further, extensive property damage may occur as a result of a marine
40
Personal communication, April 5, 2007, Brian Biddlecombe.
41
Ibid
42
Personal Communication, January 4, 2017, Bonny Brokenshire, Manager of Parks and Environment, BIM.
31
accident, as it did in June 2005, when the BC Ferries vessel the Queen of Oak Bay crashed into a
Horseshoe Bay Marina, causing over $3 million in damage. 43
With the potential of a marine accident involving the ferry within Snug Cove, transport of supplies
has been highlighted as a major concern for the community. With stock being transported from
the mainland, a marine accident of any scale could potentially have serious implications on the
normal functions of the local economy; businesses and individuals without adequate stock during
these times will be negatively affected.
With a history of marine accidents in BC waters, the risk of a marine accident leading to
infrastructure damage or a hazardous materials spill within the jurisdiction of the Bowen Island
Municipality is considered a priority hazard.
The Queen of Capilano is the assigned vessel that normally serves the Bowen Island route; the
vessel has a maximum 100 car capacity and a 457 maximum passenger and crew licence (12 crew &
445 passengers). 44 Very high winds and extreme temperatures have been recorded in the past in
the Bowen Island Municipality. In early 2017, high winds forced the ferry to remain in Snug Cove
for an extended period of time, cancelling the majority of evening sailings. These conditions
greatly increase the risk of a marine accident within Snug Cove that could have significant
consequences, including running aground, destroying the dock infrastructure and/ or sinking near
shore.
It is worth noting that should the proposed liquid natural gas facility at the Woodfibre site in Howe
Sound proceed, this HRVA must be revisited and updated; any industrial proposal that increases
the frequency of dangerous goods shipments or changes to the types of materials shipped around
Bowen Island will prompt an update of this HRVA.
Recommendations
16. Engage in training and purchase equipment related to marine hazardous materials spills for
staff and volunteers in order to be able to protect delicate shoreline areas in the event of a
marine spill.
17. Take inventory of common materials transported to and from Snug Cove both for business
continuity purposes and to determine what types of fuel could potentially be spilled in the
event of a marine accident.
18. Promote business continuity principles among local businesses - refer to Pandemic section
recommendations. This will assist in the stocking of necessary supplies in any prolonged
incident.
Extreme Weather Event & Power Outage

These two hazards are discussed together in this HRVA due to the reality that they often occur
simultaneously. An important consideration for the Bowen Island Municipality is the frequency of
rainstorms and windstorms each year, as well as snowstorm events and the potential for these
events to cripple transportation routes. Corollary effects surrounding these events include roads
blocked by debris and decreased mobility among other concerns. Means of access throughout
the Bowen Island Municipality are discussed in Section 2, Critical Infrastructure.
43
CBC News. 2011. BC Ferries Loses Horseshoe Bay Crash Lawsuit. http://www.cbc.ca/news/canada/british-
columbia/bc-ferries-loses-horseshoe-bay-crash-lawsuit-1.1051906
44
Scott Kesteloot, September 18,2017, Horseshoe Bay Terminal Manager, BC Ferries.
32
Emergency response by police, fire or ambulance may be seriously impeded if routes or
infrastructure are blocked in the event of a severe windstorm. The layout of roads on Bowen
Island is acknowledged as being a significant point of vulnerability, with few bypasses or
connector routes. Roads with no connectors increase the vulnerability of residents in those areas
and hampers the ability of emergency response vehicles to service the remote areas.
In addition to mobility issues during a windstorm, the availability of power, ferry and water taxi
service, and the marine mobility of residents may also be impacted; power outage events are not
uncommon on Bowen Island and are often a result of heavy winds in the area affecting trees that
subsequently down power lines. Power outages occur on a regular basis; however, they become a
concern when the power outage is for a significant amount of time, when temperatures are very
low or very high, or critical infrastructure, persons, livestock or businesses are affected. Power
outages usually occur in heavy winds or snowstorms, which cause hydro poles to fall or cause
trees or other debris to land on them. Power outages can also occur during landslides, avalanches
and earthquakes, and frequently occur as a result of motor vehicle accidents. As well, equipment
failure in a substation or transformer – or overuse of electrical power – can cause brownouts,
which are reduced electrical capacity or outages. Service interruptions are a serious concern,
particularly for critical infrastructure such as communication facilities and associated equipment
and response agencies (police, fire, ambulance). Due to the frequency and potential affects of
these events, power outages and extreme weather events are considered priority hazards for the
Municipality.
Recommendation
19. Ensure agencies and utilities that fill a key role in emergency operations have back-up
electrical sources and generators so that they can continue to function in all conditions.
Ensure municipal fuel stores are kept full.
20. Encourage secondary alternatives to electric heat in all residences, as well as backup power,
food and water supplies.
21. Inform new residents and at-risk homeowners that trees located on private property are the
homeowner’s responsibility; homeowners pursuing mitigation should ensure assessments are
done by certified and insured contractors and/or arborists.
Next Steps
The information presented in this assessment will be used by the Bowen Island Municipality to
update the BIM Emergency Management Plan, to enhance community preparedness and to inform
the Emergency Program budget.
The results of this HRVA will also be used to develop a strategic plan for the BIM Emergency
Program, as well as an action plan based on the recommendations following the adoption of the
HRVA by municipal council.
33
Appendix A – Risk Quantification Index
Hazard Fatality Response & Critical Property Environmental Economic Severity Total Likelihood Aggregate
and Recovery Infrastructure Damage Impact and Social Score
Injury Facilities
Earthquake 10 3 4 4 3 3 27 3 81
Structure Fire 5 0 3 1 2 2 13 6 78
Wildland Urban Interface Fire 10 2 3 4 2 3 24 3 72
Epidemic and Pandemic 15 3 0 0 0 3 21 3 62

Rockfall 5 2 2 1 1 1 12 5 60
Marine Accident 5 1 2 2 2 2 14 4 56
Extreme Weather Event 0 2 2 1 1 2 8 6 48
Power Outage 0 1 2 0 0 2 5 6 30
Dangerous Goods Transport 0 1 0 1 2 2 6 4 24
Landslide 0 1 1 1 2 1 6 4 24
Land Subsidence 0 0 2 1 1 1 2 6 24
Plant Disease & Pest 0 0 0 0 3 3 6 4 24
Infestation
Explosion - Pipeline or Tank 5 1 1 1 2 1 11 2 22
Water Contamination 5 0 0 0 1 1 7 3 21
Wildland Fire 0 0 3 1 2 1 7 3 21
Drought 0 1 0 0 2 2 5 4 20
Erosion and Sedimentation 0 0 1 1 1 1 4 5 20
Flooding 0 0 1 1 1 1 4 5 20
Hazardous Materials in situ 0 0 0 1 2 1 4 5 20
Aircraft Crash 10 1 1 1 2 1 16 1 16
Avalanche 0 0 1 1 1 1 4 4 16
Heat Wave 0 0 0 0 2 2 4 4 16
Animal Disease 5 0 0 0 0 1 6 2 12
Dam Failure 0 0 0 1 1 1 3 4 12
Debris Flow 0 0 1 1 1 1 4 3 12
Telegenic Tsunami 0 0 1 2 0 1 4 3 12
Structural Collapse 0 0 1 1 0 1 3 3 9
Riot 0 1 0 2 1 2 6 1 6
Hailstorm 0 0 0 0 1 1 2 2 4
34
Appendix B – Bowen Island Fire Department Apparatus Inventory
Apparatus Details Image
Fire Chief’s Truck Command and control vehicle

2015 Chevrolet Silverado First responder equipment, including jump kit and
4WD pickup defibrillator
(5 crew)
Engine 30 850 gal. capacity, 1250 gpm pump

2005 25 gal. foam capacity
E-One Pumper 6” draught capable
on Spartan Custom Chassis 1150’ of 4” high volume supply hose
(6 crew) 600’ of 2 ½” hose
500’ of 1 ¾ hose
1 x 150 of 2 ½” precon attack line
Must replace by 2025 2 x 150 of 1 ¾” precon attack lines (foam capable)
4 SCBAs with spare bottles
Miscellaneous ropes and tools
Amkus hydraulic extrication set
Vetter air bag lifting system
Chainsaw and rescue saw
Dry chemical extinguisher, CO 2 extinguisher
Built-in and portable generator
Scene lighting system, monitor
35
1989 Freightliner 700 gpm portable pump, 300 gpm portable pump
(6 crew) 6” draught capable
1150’ of 4” high volume supply hose
600’ of 2 ½” hose, 400’ of 1 ¾” hose
Must replace by 2019 Monitor
Built-in electrical generator
Scene lighting, ventilation fan
4 SCBAs with spare bottles
1 x 150 of 2 ½” precon attack line
2 x 150 of 1 ¾” precon attack lines
Dry chemical extinguisher, CO 2 extinguisher
Miscellaneous ropes and tools
1978 Dodge 1 x 150’ hose reel
4WD Mini-pumper 1 x 150’ 1 ¾” precon attack line
(3 crew) 600’ of 2 ½” hose
600’ of 1 ¾” hose
Underwriters don’t recognize this Dry chemical extinguisher, CO 2 extinguisher
apparatus due to its age, aiming Miscellaneous ropes, tools and lighting
to replace by 2020 * During fire season months this truck is also
equipped with:
water bladder, additional forestry pumps and hose,
etc.
Rescue 30 Equipped as a rescue vehicle
2009 International 3 mins compressed foam unit (car fires)
4WD Breathing apparatus
(5 crew) “jaws of life”
Ropes
36
Tanker 30 Equipped as a water tanker
2013 Freightliner Coranado 2800 gal. capacity, 840 gpm pump
(2 crew) 3000 gal. portable tank
Replace by 2033
Utility 30 Command truck

1997 During the summer months the truck is equipped with
Dodge Dakota hose and tools
4WD pickup
(4 crew) Usually housed at fire hall #2
Wildfire Trailer Single axel trailer

2012
37
Appendix C – Bowen Island HRVA Update Process
Multiple stakeholders were engaged in the 2017/2018 update process, including the Bowen
Island Fire Department Fire Chief and Assistant Fire Chief, the Royal Canadian Mounted
Police, BC Ambulance Service and North Shore Search and Rescue, who all contributed to
this update. BIM also consulted with local stakeholders including Bowen Fuels, Twin Island
Excavating Ltd., all local schools, Cowan Point Utility, among others. All Emergency Program
Directors (NERPs, ESS, ECT) participated in the update process, and members of the public
were engaged through emergency program committee membership, the BIM website, at
community events and through informal discussions.
The Emergency Program Management Committee participated in a series of HRVA

workshops between July 2017 and January 2018. The committee was first familiarized with
the HRVA update process and methodology, and brainstormed HRVA social, physical,
economic and environmental vulnerabilities specific to Bowen Island. They worked to
identify scenario details, likelihood, and consequence severity for hazards identified, and
identified risk reduction measures. The committee regularly provided feedback on multiple
drafts of the document. The Emergency Program Executive Committee was provided a draft
of the document in January 2017,and held a workshop in February 2018 during which further
feedback was solicited and subsequently incorporated.
Future updates could be made more robust through the creation of a stand-alone HRVA
advisory committee, made up of more community stakeholders/representatives and fewer
individuals that have an operational role. Updates should be performed more thoroughly,
with more time allotted to the process. Further, future updates should occur more
frequently (ideally every 2-3 years) and should be driven by changes to the hazards, risks and
vulnerabilities facing the Bowen Island Municipality.
EMBC provides local jurisdictions with a self-assessment tool, referred to as the Community
Emergency Program Review (CEPR), to assist communities in determining their capacity to
respond to and recover from emergencies. Below are the results of the relevant sections of
this tool, pre and post-HRVA update.
Community Emergency Program Review (EMBC tool) June, 2017 2018

Questions related to HRVA
22 Have the results of the HRVA been used to improve the emergency program? Unknown In progress
22 Has an HRVA advisory committee been established in the community that is supported No Yes
by the Executive Committee?
23 Has an HRVA advisory committee completed a Hazard, Risk and Vulnerability Analysis No Yes
(HRVA) using the HRVA Tool Kit?
24 1. Created a workplan and schedule? No Yes
24 2. Completed HRVA training of the advisory committee? No Yes
24 3. Gathered risk information and hazard maps and provided a progress report to the No Yes
Executive Committee?
24 4. Identified existing hazards, vulnerabilities, response capability, developed hazard No Yes
scenarios and provided a progress report to the Executive Committee?
24 5. Addressed the possibility of the simultaneous occurrence of different types of No Yes
emergencies?
24 6. Ranked the hazard scenarios, identified possible risk reduction measures and No Yes
provided a progress report to the Executive Committee?
38
24 7. Evaluated the risk profile, risk reduction measures and draft action items; and No Yes
provided a progress report to the Executive Committee?
24 8. Developed a public consultation plan? No No
24 9. Finalized action plans for inclusion in the Strategic Plan? No In progress
25 Is the HRVA updated annually and whenever there is a change in the hazards and risks in No No
the community?
39
Appendix D – Bowen Island HRVA Recommendations
This HRVA has identified hazards that may present risk to the Bowen Island Municipality. In
order to mitigate the impact of the risks identified in the HRVA, it is recommended that the
municipality undertake the measures listed below. This list includes an estimate of required
resources and may be used to inform future work plans, action plans and budgets.
Recommendation Resources
Recommendation
Number & Hazard Required
Continue to advance the Neighbourhood Emergency Staff Time
Resource People (NERP) program, and promote personal
1. Earthquake
independence, earthquake safety and emergency survival
kits (e.g. Grab ‘n’ Go bags) for the home, car and workplace.
Ensure new community/ municipal buildings meet at least Staff Time
minimum seismic design and loading requirements,
2. Earthquake particularly infrastructure and response facilities (e.g. new
fire hall, community centre) that will be critical post-
disaster.
Seek funding for earthquake specific planning, including an Staff Time
earthquake immediate response plan and a rapid damage Funding for
3. Earthquake
assessment plan, to guide municipal activity post- Consultant
earthquake
Strive for Exterior and Interior Operations Service Level Staff Time
competency as per the British Columbia Fire Service
4. Structure Fire Minimum Training Standards Structure Firefighters
Competency and Training Playbook for Bowen Island Fire
Department members.
Continue to provide informational assistance to residents Staff Time
where needed to empower locals and reduce the potential
for structure fires, for example recommending that
5. Structure Fire residential sprinkler systems are installed in all new home
construction. The Municipality should also follow
recommendations of the Fire Chief in construction of
municipal buildings.
Follow recommendations of the Fire Chief in construction of Financial
6. Structure Fire
municipal buildings.
Update the 1993 Bowen Island Fire Protection District Bylaw Staff Time
7. Structure Fire No. 41 to reflect current conditions and to empower Bowen
Island Municipal staff to enforce fire related bylaws.
Continue with FireSmart communication goals around the Staff Time
community, including the dissemination of information
8. WUI Fire
through brochures, public events, the BIM website and
social media to raise awareness.
Seek funding to update the 2007 Community Wildfire Staff Time
Protection Plan, conducted for the Municipality to mitigate Funding for
9. WUI Fire
the potential impact of a major wildland fire event on the Consultant
island.
Engage in evacuation planning to address the unique needs Staff Time
10. WUI Fire associated with evacuating an island and evacuating Funding for
neighbourhoods with single accesses. Consultant
40
Engage in continuity planning so as to be able to continue to Staff time
11. Epidemic/
offer essential municipal services during times of reduced Funding for
Pandemic
workforce. Consultant
Promote continuity planning for local businesses who will Staff time
12. Epidemic/
likely be most affected, particularly those providing critical
Pandemic
services (gas station, grocery stores).
Remain up-to-date and utilize useful pandemic resources, Staff time
such as local government guidelines within the Vancouver
13. Epidemic/
Coastal Health Regional Pandemic Outbreak Response
Pandemic
Plan (2015) and the British Columbia Pandemic Influenza
Preparedness Plan (2005).
Seek geotechnical expertise where necessary to confirm Staff Time
14. Rockfall hazard hotspots, particularly where houses and Funding for
infrastructure are at risk. Consultant
Utilize and act upon third party assessment where it is Staff Time
deemed a priority to mitigate rockfall hazard. This may Funding for
15. Rockfall
include the introduction of fencing, terraced barriers or Consultant
other rockfall mitigation measures.
Engage in training and purchase equipment related to Staff Time
16. Marine marine hazardous materials spills for staff and volunteers in Funding for
Accident order to be able to protect delicate shoreline areas in the Consultant
event of a marine spill.
Take inventory of common materials transported to and Staff Time
17. Marine from Snug Cove both for business continuity purposes and
Accident to determine what types of fuel could potentially be spilled
in the event of a marine accident.
Promote business continuity principles among local Staff Time
18. Marine businesses - refer to Pandemic section recommendations.
Accident This will assist in the stocking of necessary supplies in any
prolonged incident.
Ensure agencies and utilities that fill a key role in emergency Staff Time
19. Extreme
operations have back-up electrical sources and generators
Weather & Power
so that they can continue to function in all conditions.
Outage
Ensure municipal fuel stores are kept full.
20. Extreme Encourage secondary alternatives to electric heat in all Staff Time
Weather & Power residences, as well as backup power, food and water
Outage supplies.
Inform new residents and at-risk homeowners that trees Staff Time
21. Extreme located on private property are the homeowner’s
Weather & Power responsibility; homeowners pursuing mitigation should
Outage ensure assessments are done by certified and insured
contractors and/or arborists.
41

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Hazard, Risk and Vulnerability Analysis 2018

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Hazard, Risk and Vulnerability

Photo by Jason Wilde

An HRVA is a critical part of every emergency program and is a requirement mandated by

Earthquake Wildland Urban Power Outage Marine

Epidemic or Pandemic Rockfall Extreme Weather Structure Fire

Hazard Risk and Vulnerability Assessment Overview

In determining the severity of a hazard event, a community’s vulnerability must be examined.

Scope & Methodology

Table 1- Likelihood Rating for Occurrence of Hazards

Highly unlikely or anticipate less frequently than 1 in 200 years 1

Table 2- Severity of Impact

CATEGORIES CRITERIA SCORE

PEOPLE Max Sub-Score: 15

An explosion is the ignition of a flammable substance resulting in instantaneous combustion.

Bowen Island Municipality Overview

Critical Response and Recovery Facilities

Fire Hall #1 788 Grafton Rd

Response capabilities are discussed further in Section 3.

Type Tank Capacity

Telecommunications and repeater towers atop Mt. Gardner on Bowen Island

Water System Approx. number of active users

Section 3: Response Organizations

Bowen Island Fire Hall #1 located at 788 Grafton Road

Bowen Island RCMP Detachment located at 1017 Miller Road

BCAS station #225 located at 1034 Miller Road

Search and Rescue

Section 4: Emergency Support and Preparedness

Bowen Island Municipality Emergency Program

Emergency Operations Centre (EOC)

Designated Building Address Details

Public Works Department

Parks and Environment Department

Bowen Island Public Notification System (BowENS)

Emergency Support Services

Neighbourhood Emergency Resource Persons (NERPs)

All Hazards Recommendations

Outreach and Education

Wildland Urban Interface (WUI) Fire

Epidemic and Pandemic

Hazardous Materials Spills

Extreme Weather Event & Power Outage

Epidemic and Pandemic 15 3 0 0 0 3 21 3 62

Fire Chief’s Truck Command and control vehicle

Engine 30 850 gal. capacity, 1250 gpm pump

Utility 30 Command truck

Wildfire Trailer Single axel trailer

The Emergency Program Management Committee participated in a series of HRVA

Community Emergency Program Review (EMBC tool) June, 2017 2018

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