Select Committee on Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions Third Report

5  Prevention

Automatic Fire Alarms

50. The Committee received some evidence suggesting that automatic fire alarm systems were responsible for an increasing number of false calls:

"The fire service is responding to an increasing number of false alarms generated by automatic fire detection equipment (although LFEPA is consulting upon a proposal to reduce its response to such calls as part of its Integrated Risk Management Plan). This is a drain on resources, diverting time and effort away from other more important activities, such as community fire safety and education work. It is also a drain on the building occupiers, as their activities are disrupted while the building is evacuated and the cause of the alarm investigated. Our approach is to continue to work closely with building owners and occupiers, and with the alarm companies, to make sure fire alarm systems are correctly designed, installed, commissioned and maintained and to promote good building management practices to reduce the number of false alarms. Fire alarm systems in commercial buildings should conform to the relevant British Standard. Over the years, this standard has evolved and improved but the latest version, which places a duty on alarm providers to reduce false calls, only applies to new and altered systems and there are older systems still in operation to which this duty does not apply. We have previously considered whether allowing fire authorities to charge when repeatedly called out as a result of equipment false alarms would assist in reducing unwanted calls, but recognise the weight of the counter argument that this might prompt the less responsible to turn the equipment off, thus creating more risk to occupants."[59]

51. While keen to reinforce the need for adequate fire protection and early detection, we are very concerned about the increasing number of false alarms generated by automatic fire alarms. False alarms cause disruption for property owners, occupiers and the Fire Service, and represent an unnecessary drain on resources. A balanced approach must be taken to reducing the number of false alarms, without deterring use of automatic systems. We recommend the Government establish a working party of all stakeholders to consider how this problem might be tackled. The group should consider whether charging would address the issue.

Building Regulations

Sprinklers

52. The World Fire Statistics Centre estimates that UK property losses from fire total around £1 billion annually. Some of these losses are covered by insurance, although this is not always the case with domestic property; but compensation cannot cover the disruption caused, particularly to schools and businesses.[60] The Association of British Insurers told us that:

"Fire material damage and related business interruption costs totalled £1.4 billion in the UK in 2002, rising for the third consecutive year. The cost of arson contributes £2.1 billion to the total cost of fire, and insurers estimate that arson results in insurance claims totalling £700 million each year in the UK, much of which is avoidable through the use of appropriate fire suppression and security measures."[61]

53. Many witnesses believe the most appropriate fire suppression measures are sprinklers;

"LFEPA has long campaigned for the introduction of domestic sprinklers, on a risk assessed basis, as a means for tackling fires in those residential property, where there is a high risk of death and injury from fire; for example, in sheltered housing and rented older houses in multi-occupation. We therefore welcome the decision by ODPM to commission research to consider their effectiveness when used in residential premises and look forward to early publication of its conclusions. […] There is already a body of evidence that promotes the use of sprinklers in school buildings. Fires in schools in London, and nationally, continue to represent a huge cost counted in tens of millions of pounds, not to mention the serious educational disruption and upset that often results from them. In view of the recognised benefits of sprinkler use in such buildings where there is usually a large amount of combustible material present, and the potential for rapid fire spread in the event of a fire, LFEPA will continue to press for appropriate provision within Building Regulations." [62]

"We believe that the use of sprinklers elsewhere in the world, especially in residential properties, has shown that a dramatic drop in the number of fatalities from fire is achievable. Given that sprinklers have been around for a number of years now and that standards are available elsewhere, we believe that there is an unacceptable delay in the review of Building regulations and the use of sprinklers, including the advances made in water mist technology. With the proposed Government house building programme for the next few years, there is a unique opportunity to provide fire safe dwellings that we cannot afford to miss."[63]

"Building regulations have played a key role in reducing fire risk in both public and private buildings. We welcome the renewed commitment to review and to looking at the role played by domestic sprinklers. But we think the government is being too cautious and too slow. Research should be accelerated and the review undertaken as a matter of urgency."[64]

"We believe that domestic sprinklers and other buildings such as schools should play a key role immediately in the Integrated Risk Management Plans. We regret the White Paper does not suggest this."[65]

Apart from increasing public safety, the London Fire and Emergency Planning Authority told us that sprinklers increase the safety of firefighters:

"A further concern relates to the protection of firefighters who may have to enter premises to fight fires once they have broken out. Particular problems have arisen in large un-compartmented buildings such as warehouses or large retail outlets, where rapid fire spread can increase the risk to firefighters. We believe that installation of sprinklers in such buildings would reduce these risks."[66]

54. In the White Paper the Government commented:

"We are reviewing the potential for domestic sprinklers as a means for tackling fires in the home, and we have commissioned research to consider their effectiveness when used in residential premises. We will consider the results of that research in the forthcoming review of the Building Regulations."[67]

The draft Fire and Rescue National Framework adds to this:

"Early in 2004, the Government will begin a comprehensive review of Approved Document B.[68] In particular we will look at the case for increasing the requirements for automatic sprinklers where risks are greatest, following the successful implementation of a requirement for such installations in large single storey retail buildings with compartments over 200 square metres."[69]

In oral evidence the Minister explained that the department recognised the contribution sprinklers could make towards fire prevention, but was awaiting evidence on technical issues before coming to a decision:

"We are just coming to the end of a very detailed research programme relating to sprinklers in residential properties. I referred to the work we did earlier on sprinklers in commercial premises where we made a very significant change in the standards just three years ago and we are now completing the research because there needs to be an evidence base for work in this because there are some quite difficult technical issues which must be taken on board before decisions are taken. We certainly see potential contributions sprinklers can make for fire prevention and suppression in a number of circumstances. We want those decisions to be evidence based and we have already announced that there will be a review of Part B of the Building Regulations next year and that will allow that work to be taken forward.[70] […]I think any decision on sprinklers must be taken on a proper evidence base and I did mention some of the complexities. One of the complexities is ensuring that the water supply is provided in a way that does not expose people to the risk of, for example, legionnaires disease if there was an inadequately maintained supply of water feeding through a sprinkler system. That is a genuine anxiety which has been raised and obviously if you are talking about a population of elderly people, there is particular risk there, so there are technical issues which must be addressed. Those are being looked at the moment through the research programme and we expect to be taking decisions in the coming year in the light of that evidence, but I accept entirely that there is a potential role for sprinklers in certain circumstances and you have highlighted some circumstances where that might be appropriate and there are almost certainly others. I am conscious of the number of arson attacks on schools where very considerable damage has been caused. I am told that the cost of the installation of a sprinkler system could probably be recovered in something less than five years or around five years as a result of reduced insurance premiums. That is clearly a factor which needs to be taken into account and we need to talk to and are already talking to our colleagues in DfES about this issue, but a lot of these issues are being considered and we are going to be making progress, I hope."[71]

55. We received overwhelming support for the introduction of sprinkler systems in schools, houses of multiple occupation and the domestic properties of vulnerable groups, such as the elderly. We strongly recommend that in this year's revision of the Building Regulations, Ministers introduce a requirement for sprinklers to be fitted to all new build properties of these types, as this would have more impact on public and firefighter safety, than any other proposal in the White Paper.

SMOKE ALARMS

56. The White Paper highlights that; "when domestic fires break out, they can spread so quickly that, by the time the fire brigade arrives, even if it arrives within the five minute target set for highest risk areas under the current standards of fire cover, it can be too late."[72] Consequently, if a fire does break out, early detection can save lives. The Minister praised the "[…] initiatives taking place in different fire brigades throughout the country in terms of getting more smoke alarms fitted in properties, concentrating on community fire safety work with some of the most vulnerable sections of the community."[73] Analysis of fire deaths and injuries before and after the introduction of these initiatives proves that a functioning smoke alarm can save lives, as Good Practice Example Two demonstrates. The Association of British Insurers estimates that 81% of homes have smoke alarms.[74] There have been sustained high-profile media campaigns to increase smoke alarm ownership, and to encourage people to test their smoke alarms regularly.

57. The Building Regulations "ensure that new buildings, and alterations and extensions to existing buildings, incorporate reasonable measures to protect people from fire, such as, for example, the provision of hard-wire, interlinked smoke alarms in new buildings."[75] However, there is no requirement for landlords to install smoke alarms in existing properties, a situation some believe is unhelpful:

"I would like to see it a requirement for all tenanted property, for example, to have smoke alarms. That is not of course in itself a sufficient measure, but it would certainly be helpful. A number of authorities - including my own - are installing smoke alarms free of charge in all council properties. This could be extended to all rented properties, I suggest. There are measures like that which need to complement the day to day activities of the Service in terms of prevention."[76]

58. We believe that functioning smoke alarms save lives and reduce injuries. The Committee congratulates those Fire Services which operate initiatives to fit free smoke alarms for the vulnerable. We welcome the requirement for alarms to be hard-wired in alterations, extensions and new buildings. We recommend this requirement be extended to include all existing tenanted properties, housing of multiple occupation and housing for vulnerable members of society. If the design of such buildings makes installation of hard-wired alarms impossible, we recommend use of alarms fitted with 10 year batteries.

Role of the Voluntary Sector

59. The White Paper does not visualise a role for the voluntary sector in its outline of a modernised Fire and Rescue Service. The Friends of Merseyside Fire and Rescue Service are critical of this omission:

"The Independent Review of the Fire Service, carried out by Sir George Bain identified the need for the fire service to engage in partnership working with a range of agencies to enhance its community fire safety work. The Government's target is to increase voluntary & community sector activity, including increased community participation, by 5% no later than 2006 and it in turn looks to the voluntary sector to reform the operation of public services in the 21st Century. In addition, the Government has reacted positively by allocating funds to create the concept of "future builders". Almost all public services including the emergency services have some form of voluntary arm contributing their time to assist in providing a service to the local community. The fire service, except in the most remote rural areas of the UK do not engage local volunteers. […] Merseyside Fire Authority has acted positively upon previous Government initiatives and targets generated in 2000, which specify the need to increase voluntary sector activity within public services in order of enhancing its' ability to achieve corporate objectives of reducing deaths and injury as a result of fire [sic]. Coupled with the matched funding allocation provided by the Home Office Active Community Unit, the Friends of Merseyside Fire Service has been developed in advance of the proposed National Fire & Rescue Framework and introduction of integrated risk management plans. The Friends of Merseyside Fire Service has satisfied thus far the targets set by the Home Office Active Community Unit and has received plaudits from within the Fire Service for its rapid development and success. However, disappointingly, its current contribution and potential future contributions by volunteers, has not been recognized within the proposals outlined in the White Paper. […] The White Paper suggests that the Fire and Rescue Service should develop its engagement of stakeholders to contribute fully to its modernization. Again, to clarify, it fails to recognise the potential for voluntary sector involvement as a potential development opportunity."[77]

60. In 1996 Assistant Fire-master Robert Coke conducted international research into the use of volunteer firefighters. He concluded that the use of volunteers in the United Kingdom would "increase greatly" the efficiency and effectiveness of the Fire Service.[78] The submission from the Friends of Merseyside Fire and Rescue Service highlights successful examples of volunteering from abroad:

"Volunteering with the Fire Service is a new concept in the United Kingdom but has been very successful in other countries, for example USA. The United States has pursued and developed a volunteering culture historically. The Friends Charity conducted internal research in Fairfax Fire & Rescue, Virginia, USA on available volunteer opportunities in the USA. Volunteers carry out roles, which are a mixture of operational and administrative roles. Nearby Arlington Fire & Rescue have volunteers which are all non-operational. Historically, the fire & rescue service in Fairfax was voluntary and later developed in to a mixture of a paid and voluntary service. The non-operational roles involve the promotion of fire safety, the installation of car baby seats and the running of a canteen service. The canteen service encourages the integration of both paid and volunteer staff in an emergency scenario. Arlington Fire & Rescue had many volunteers undertaking several administrative roles and the promotion of fire safety issues. Policies and procedures have been developed and assisted in the creation of some of those at the Friends of Merseyside Fire Service. In addition, Fairfax Fire & Rescue are currently liaising with the Friends Charity to assist in the creation of a canteen service in Merseyside."[79]

The Minister appears to recognise the potential: "So this is an area where there is scope to do more but I would not take a wholly negative view that there has not been any provision at all."[80]

61. We recommend that the Government make more effort to encourage partnership between the voluntary sector and the Fire Service. Volunteers can be especially useful in promoting fire safety awareness in hard to reach communities. Bilingual advocates have been used successfully to access communities where English is not the first language.

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59   Ev 143 [The London Fire and Emergency Planning Authority (LFEPA)] Back

60   Ev 21 [The World Fire Statistics Centre] Back

61   FIR 59 Back

62   Ev 140 [The London Fire and Emergency Planning Authority (LFEPA)] Back

63   Ev 1 [East Sussex Fire Authority] Back

64   Ev 165 [The Local Government Association] Back

65   Ev 165 [The Local Government Association] Back

66   Ev 140 [The London Fire and Emergency Planning Authority (LFEPA)] Back

67   Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions, Our Fire and Rescue Service, Cm 5808, June 2003, p 3.10 Back

68   Approved Document B (2000, amended 2002) of the Building Regulations deals with fire safety. Back

69   Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions, Draft Fire and Rescue National Framework, December 2003, p 1.26 Back

70   Q 432 [Rt Hon Nick Raynsford MP, Minister for Local and Regional Government, Office of the Deputy Prime Minister] Back

71   Q 434 [Rt Hon Nick Raynsford MP, Minister for Local and Regional Government, Office of the Deputy Prime Minister] Back

72   Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions, Our Fire and Rescue Service, Cm 5808, June 2003, p 3.2 Back

73   Q 392 [Rt Hon Nick Raynsford MP, Minister for Local and Regional Government, Office of the Deputy Prime Minister] Back

74   FIR 59 Back

75   Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions, Our Fire and Rescue Service, Cm 5808, June 2003, p 3.9 Back

76   Q 296 [Sir Jeremy Beecham, Chair, Local Government Association] Back

77   Ev 161 [The Friends of Merseyside Fire Service] Back

78   Coke, RD, The use of volunteer firefighters in Metropolitan Areas, BCC project, Fire Service College, 1996 Back

79   Ev 161 [The Friends of Merseyside Fire Service] Back

80   Q 468 [Rt Hon Nick Raynsford MP, Minister for Local and Regional Government, Office of the Deputy Prime Minister] Back

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Prepared 23 January 2004