IceStorm 98 Study

Introduction

In parts of Canada, 1998 will be forever known as the year of the “Great Ice Storm”. During the first week of January, an ice storm of unprecedented magnitude descended on eastern Ontario and southern Quebec.

Freezing rain that fell for five days, coating trees and hydro lines with ice, caused massive power outages. Telephone lines came down along with power lines making communication almost impossible in places. Slippery roads impeded travel and gas was in short supply.

“At the height of the storm more than 200 Quebec communities declared a disaster; 1,291,500 residences (affecting 3,228,750) were without power; and 100,000 people were being accommodated in 454 reception centres. Some people in southern Quebec remained without power for up to four weeks. In Ontario, 57 [the actual number was 66] communities declared a disaster; 250,000 customers (1,500,000 people) were without power in Eastern Ontario.”

The 1998 Ice Storm (as of July 31st, 1998), compiled by Jacques Heneault, Office of the Senior Scientific Advisor, Emergency Preparedness Canada, July 31, 1998.

Under Ontario legislation, municipalities are the first line of response during emergencies. (If the local municipality cannot handle the emergency on its own, the provincial government provides assistance; and if the provincial government needs help, it in turn, seeks assistance from the federal government). Local politicians were quick to realize the severity of the situation in their own municipalities and began declaring emergencies and mobilizing a local response. Communities pulled together to help themselves. Volunteers quickly became the backbone of the response, aided by municipal staff and politicians, the provincial police and businesses and industries.

Local efforts were soon bolstered with outside utility and forestry crews and help from the provincial and federal governments. The first response was by local governments, agencies, and citizens, but needs soon exceeded their capacity to respond. Outside help began coming in within 24 hours and continued to build up for over a week. Initially outside help was organized at the local level. Some was initiated by requests from within the affected area to agencies outside. In addition, as word of the extent of the emergency spread through the media, outside agencies began to send in help. The first help came as a result of previous networking and individual initiative. By the fourth day (January 12th) it was provided on a more organized basis.

The response of the provincial and federal governments can be considered under two headings: 1) that of the emergency measures agencies; and 2) the operational involvement of their various ministries. Emergency Measures Ontario (EMO) – the division of the Ontario Ministry of the Solicitor General and Correctional Services (MSGCC) responsible for emergencies receives the municipal declarations of emergencies, and decides what provincial response is appropriate, including requesting federal assistance. It also co-ordinates the response of provincial agencies and may call on any provincial or other resources considered necessary.

Facing an unprecedented emergency of such a large scale was challenging. EMO normally sends a field officer to any municipality declaring an emergency, but found itself trying to respond to 66 declared emergencies with only four field officers. High demand for supplies such as generators, batteries, candles, kerosene, and other fuels quickly created shortages and resulted in requests for these items from EMO. Unaccustomed to receiving demands for these kinds of supplies and equipment, EMO spent several days getting organized. Supplies were diverted to eastern Ontario early in the week following the storm. A generator working group responsible for locating and distributing generators powerful enough to provide back-up power for large buildings, was formed at the Provincial Operations Centre in Toronto. The Ontario Ministry of Agriculture, Food and Rural Affairs (OMAFRA) co-ordinated the distribution of generators to the farming community.

Locating and distributing generators was also part of the federal government’s response. As well, the federal government expedited supplies coming from the United States through customs and deployed over 15,000 soldiers, the largest ever peace-time deployment of Canada’s armed forces. The military deserves special mention. Not only did they respond on a huge scale with thorough professionalism, they arrived almost immediately bringing with them much needed equipment, vehicles, skills, and leadership.

Help was also provided by the Municipal Electrical Association, various utility companies from the United States and Canada, the Red Cross, Salvation Army, St. John’s Ambulance, and volunteers who travelled hundreds of kilometres to the disaster area.

Soldiers and electrical, telephone and forestry crews worked in bad weather conditions to clear roads and repair damaged poles and lines. Shelters operated 24 hours a day, providing residents with hot meals and a warm place to stay. Door-to-door checks were conducted by various groups including the police, Royal Military College cadets, soldiers, and volunteers.

During the power outage, our society’s dependence on electricity became only too clear. Left without heat, running water, and a way to cook food, people struggled to survive. Fortunately, few deaths resulted from the ice storm and overall there was little trauma. Stresses were enormous however, particularly for the vulnerable: - the young, the elderly, and the sick. Emergency responders themselves were victims of the storm, trying to cope with their home situations and do their jobs at the same time. Millions of people were severely inconvenienced for several weeks.

The effects of the Ice Storm persist as recovery efforts continue. Flickering lights are still a cause for mild panic. Repair and upgrading of the electrical infrastructure is ongoing. If the experience taught anything, it showed that disasters can strike. Coping better next time means being better prepared, both individually and collectively.