House of Commons - Communities and Local Government Committee

Select Committee on Communities and Local Government Committee Fourth Report

7 People management

81. The FRS has a poor track record in managing its personnel. This was highlighted by the 2002 Bain Review which stated:

"personnel policy, procedures and practices in the Fire Service give cause for concern. Despite clear policies from management and the FBU in favour of diversity, in practice only lip-service is paid to it. Harassment and bullying are still too prevalent. The leadership must recognise that urgent action is required. An improved programme of HR management must be put in place as a matter of priority".[205]

In response to this, the Government's White Paper on the Fire and Rescue Services identified human resources as a key theme for modernisation. The Report of our predecessor Committee considered diversity within the FRS and its management of retained fire-fighters, concluding that in order to make progress on these issues, a change in the culture, attitude and behaviour within the service was required.[206] Our inquiry concentrated on progress made on diversity and the management of retained firefighters.

Diversity

82. It has been recognised for some time that diversity in the FRS needs improvement. The ODPM said that "the government has had concerns about the performance on the Fire and Rescue Services on issues of equality and diversity for a number of years" and in its 2003 White Paper pledged to "take action, working with employers and the unions, to promote a more diverse culture…the service must better reflect the community it serves".[207]

TARGETS

83. The ODPM's latest national diversity targets for the FRS were set under the 2000 Spending Review. The FRS was set a target to achieve 9 per cent of uniformed operational staff being women and 3.6 per cent of uniformed and non-uniformed combined being ethnic minorities by 31 March 2004. None of these targets were met, as only 2.4 per cent of the workforce were women and 2.6 per cent were from ethnic minorities by the 2004 deadline.[208] Based on a Home Office legacy target from 1999/2000, the FRS is expected to increase the percentage of female uniformed operational staff to 15 per cent and ethnic minority staff to 7 per cent by 2009.[209] The ODPM has said however that it is unlikely that the FRS will meet these diversity targets by 2009 due to slow progress.[210] FRAs also have diversity related Best Value Performance Indicators (BVPIs) to meet, which help the ODPM to monitor local performance and to aid performance assessment.[211]

REASONS FOR POOR PERFORMANCE

Setting the right targets

84. One reason for the poor performance could be that the targets are simply too difficult to achieve. Devon Fire and Rescue Authority said of the target relating to women "[the] ODPM should recognise that the target of 15% by 2009 is simply unachievable".[212] Stoke on Trent and Staffordshire FRA recognise that targets should be challenging, but consider the current ones unrealistic.[213] West Yorkshire FRA called for the targets to be "revised and expanded".[214] The ODPM told us that they are currently reviewing the targets with stakeholders as they "want a target that will stretch but will be achievable".[215]

85. The ODPM has not set targets to increase women in the non-operational workforce because it says that women are well represented here.[216] The local BVPIs for 2005-06 focus on ethnic minorities who are uniformed staff (whole-time, retained and control personnel) rather than the entire workforce. This discrepancy between local BVPIs and national targets for ethnic minorities may mean that some FRAs think that they should be concentrating on recruiting ethnic minority people only for uniformed positions; in written evidence, several FRAs and the CFOA called for performance targets to be expanded to cover the entire workforce.[217] Lancashire Combined FRA told us that "current diversity targets should not be restricted to uniformed operational staff but should expand to include all uniformed staff engaged in service delivery, whether those staff fulfil an operational role or not".[218] This is despite the fact that the national target for ethnic minority representation already covers the entire workforce.

86. UNISON told us of its unhappiness that the ODPM's diversity strategy concentrates on employees who work in firefighting and fire control rather than the entire workforce. Also, it believes that the distinction between uniformed and non-uniformed staff implies that non-uniformed staff "are in some way inferior to the majority of the workforce".[219] However, we consider that it is necessary to make a distinction between uniformed and non-uniformed staff as the need to increase diversity amongst non-uniformed staff is less pressing. A diversity target covering the entire workforce could take the pressure off FRAs to increase diversity amongst uniformed staff.

87. It is important that the Government set both national targets and Best Value Performance Indicators (BVPIs) which are consistent, making it clear exactly what is required of FRAs. The Government needs to reiterate that the national target for ethnic minorities relates to the entire fire service workforce, not just operational uniformed staff. The national target should be supported by separate BVPIs which distinguish between uniformed, non-uniformed, operational and non-operational staff. While it is important that the Government does not devalue, or appear to devalue, any particular section of the workforce and that its diversity strategies and targets apply to every area within the Fire and Rescue Service, the distinction between uniformed and non-uniformed staff needs to be retained in order to focus the attention and activity of FRAs.

RECRUITMENT FREEZES

88. The CFOA told us that "some of the attention and scrutiny on diversity issues has been diluted by other major initiatives such as modernisation and civil resilience".[220] Other evidence supports this position. Although community safety work has provided some opportunities to employ staff from under-represented groups, some FRAs argued that the shift in emphasis towards fire prevention had also served to undermine progress on diversity: in some cases allocating resources to prevention had resulted in recruitment freezes for operational staff. Lancashire Combined Fire Authority told us "the effect of this [recruitment freeze] is that the Authority is unable to make any real impact with respect to increasing diversity among its operation workforce".[221]

IMPACT OF REGIONAL CONTROL CENTRES ON DIVERSITY

89. Women account for some two-thirds of the workforce in existing control centres. Redundancies arising from the move to regional control centres are likely, as the ODPM accepted, to have a greater effect on women and therefore further erode their representation with the FRS workforce. The Government says that this is "an opportunity for FRSs to take more active steps to actively promote diversity within their organisation". We recommend that redundancies should not be contemplated until every avenue for re-deployment has been explored.

DIVERSITY AND THE CPA

90. Both UNISON and the CRE were critical of the Comprehensive Performance Assessment (CPA) process for the low priority accorded to diversity issues.[222]This is a concern which we share. Addressing the poor performance on diversity over recent years should become a key issue for the FRS. We recommend that in future, a Fire Authority should not receive a Comprehensive Performance Assessment rating higher than good unless it can demonstrate that significant progress, in line with any revised Government targets, has been made on diversity issues generally and within the workforce in particular.

LACK OF LEADERSHIP

91. The CRE criticised the ODPM for its lack of leadership on diversity issues.[223] Other evidence validates this criticism. In its original submission to our inquiry, the Department paid scant attention to diversity within the FRS despite our raising it as an area of concern. When pressed, more information was forthcoming. The ODPM told us of a number of practical steps it had taken to promote cultural awareness such as multi-faith seminars and the fire safety campaigns of recent years, which the CRE heralded as models of good practice. These good initiatives have, however, been undermined by an apparent lack of commitment in other areas. In 2004 the ODPM established the Diversity Happens forum: the support groups for this forum have still not been established. A national equality and diversity adviser was appointed in 2004 but their term ended a year later. A project to bring in new national fire-fighter selection tests, intended to reduce discrimination, was launched in 2001 yet the new tests have not yet been implemented. In 1999 the HMFSI made 38 recommendations regarding diversity, equality and fairness in the FRS. These recommendations are still waiting to be reviewed by the Government, despite a recommendation to that effect from our predecessor Committee in 2004. The Fire Officers' Association told us that many of the Government initiatives had an "exclusive approach".[224] This is borne out by evidence from the FBU who told us that its minority representatives had been excluded from the Diversity Happens forum despite their acknowledged expertise and effective advocacy.[225]

92. We are disappointed and dismayed at the lack of progress that has been made on diversity within the FRS and particularly at the Government's half-hearted and ineffective leadership on the issue. We recommend that the Government immediately (i) establish support groups for the Diversity Happens forum; (ii) re-appoint a national adviser of equality and diversity for the FRS; and (iii) implement the long-promised new selection tests for fire-fighters. We further recommend that the Government conduct a thorough review of its diversity policy and initiatives relating to the Fire and Rescue Service, reporting within the next 18 months. We also recommend that the Government, within two years, publish and promulgate a nationwide strategy for promoting diversity within the Fire and Rescue Service that takes into account the experiences and expertise of all stakeholders.

Retained fire service

93. Retained firefighters, working on the Retained Duty System (RDS), are part-time staff who turn out at short notice to participate as professional fire-fighters alongside the regular fire service. Retained firefighters live or work close to their stations and are on call to respond to incidents. Most have other full-time jobs in a wide range of trades and professions. The Retained Firefighters Union (RFU) explained "there are just over 18,000 RDS personnel covering 60% of fire stations, but they provide fire and rescue cover for over 95% of the landmass of the UK".[226] Much of the service provided by retained fire-fighters is in rural areas. The Bain Review, our predecessor Committee's recommendations and a recent government review have all addressed issues specifically relating to the retained service.[227] These have included recruitment (particularly in rural areas), a pay system that creates anomalies and is demoralising, lack of a pension scheme, lack of training, poor relations with full-time personnel, and a lack of representation on the key negotiating institution, the National Joint Council (on which the FBU holds all 27 seats).

94. The RFU told us that there has been little or no progress in implementing the recommendations of any of the above-mentioned reports: "Since the publication of the previous report of the Committee in 2004, there has been a failure to implement its recommendations in respect of the Retained Duty System (RDS). There has also been a failure by fire and rescue authorities to progress the findings of several other high profile reports on the RDS".[228] The RFU highlighted the following as key areas of concern:

Failure to reform the NJC and industrial relations;
Lack of progress on the recommendations of the Retained Review;
IRMPs that fail to take advantage of the flexible and efficient working arrangements of the RDS;
The expectation that the addition of operational assessment to the Audit Commission's CPA process will fail to provide for a RDS perspective;
Failure to implement IPDS for RDS and downgrading of RDS under IPDS implementation of Rank to Role;
Lack of RDS input to local and national strategic development;
Bullying and harassment of RDS personnel, especially during industrial disputes, and
Delayed introduction of flexible pension arrangements.[229]

95. As our predecessor Committee noted, the retained fire service has felt undervalued for some time, and evidence from the RFU emphasised that many in the retained service continue to feel like "second class citizens".[230] This is largely because of a lack of understanding of the retained service by whole-time firefighters, who occupy the majority of managerial positions within the FRS. As the President of the RFU told us:

"where you have a management structure that is primarily based on whole time employees, where your chief officers and senior management work their way up through the ranks from firefighters and they have all been whole time, they have got a very limited understanding of the needs and capabilities of the retained service. We continually find that policy has been developed which works very well for whole time employees but when that is just bolted on to the retained service it does not work as well or it is very difficult to work".[231]

The retained review recommended the appointment of Retained Liaison Officers to help facilitate better communication and understanding between the retained and whole-time service. It seems that in some cases however, liaison officers that have been appointed have a limited capacity to carry out this role. The RFU cited a recent example.[232] It makes sense for Retained Liaison Officers (RLOs) to be whole-time firefighters so that they have an understanding of the culture and views of that part of the service. However, if Retained Liaison Officers (RLOs) are to have any effect, they must be given adequate information and training and should consult with colleagues in the retained service.

RECRUITMENT

96. Cumbria FRA told us:

"Cumbria, as many other rural fire and rescue services, are experiencing real difficulties in recruiting and retaining retained fire-fighters. Increasing levels of commitment required to meet training and health and safety requirements of a modern emergency service, a changing culture away from intervention to prevention are placing significant demands upon our part time workforce and their conditions of service have not kept pace with the reform agenda".[233]

ODPM officials recognised the problem, stating: "one of the issues is recruitment of retained [firefighters] and it is a big challenge to make sure we keep up the level of recruitment because it has become increasingly difficult to encourage people in some areas into the Retained Service".[234]

INCLUSION: COMMUNITY FIRE SAFETY, DIVERSITY AND RISK PLANNING

97. The RFU notes the reduction of fire-related deaths as a result of an increased emphasis on prevention through Community Safety Work.[235] However, while retained fire fighters are usually based within the local community, the RFU states that they are rarely used for community fire safety work. In rural areas this is a particular issue as the alternative is to send full-time officers long distances to local communities. The benefits of existing links between retained firefighters and the local community are also lost. The RFU has suggested greater use of existing rural stations as community fire stations in rural and semi-rural areas.[236] The RFU also suggested that retained firefighters are well placed to help recruit minorities as they are based within the local community.[237]

98. The RFU also told us that it felt that the retained service was not adequately involved in planning or decision-making processes and that IRMPs did not make full use of the retained service.[238] The retained service offers a highly flexible and efficient means of service delivery for the FRS but it seems that this is not always reflected in IRMP planning. The RFU told us that there are many opportunities for greater use of retained firefighters, who are often used to maintain service delivery during industrial disputes (most recently in Suffolk). The RFU argued that IRMPs should reflect this "major opportunity for making a more effective and efficient Fire Service outside the metropolitan areas".[239] The RFU highlighted an example in Norfolk where use of retained stations would enhance efficiency and provide an ideal alternative to station closures.[240]

99. Not all witnesses agreed with the RFU's assertion that there was a "lack of involvement [of the retained service] at strategic level". A representative of Devon FRA said

"I would not agree that the retained service is less involved. The integrated risk management plan is about the service as a whole and in Devon, for example, retained firefighters and retained fire stations are an essential and a fully integrated part of the organisation. They feature within our integrated risk management plan completely".[241]

Nevertheless, we emphasise the importance of including the retained service both in the production of IRMPs and as a resource within them. It seems to us that the key obstacle to this is communication, as identified by the RFU:

"there are difficulties for brigades in communicating correctly and thoroughly with the retained because they do not have the experience of doing the job in the first place in many instances. That gives them a communication problem about how to involve them and drive something through to make change for the better".[242]

100. We recommend the Government ensure that retained firefighters are recognised as a vital bridge between the FRS and the communities they serve; their status should be enhanced by greater involvement in planning systems, for example with seats on the National Joint Council, and a clear role in fire planning, particularly in rural areas.

LACK OF PROGRESS ON REFORM

101. We are disappointed with the lack of progress on the issues identified by the retained review and our predecessor Committee. Part of the reason for this may be the absence of a clear allocation of responsibility for implementing reform. The RFU seemed to think that this was the responsibility of the CFOA.[243] The CFOA explained that it "is not the employer, nor is it the Employers Organisation, and so the practical ability to implement many of the recommendations lies with other stakeholders - not least individual fire and rescue authorities".[244] ODPM officials told us that

"We did have a major review of the Retained Service which reported in January 2004 and that is now with the Chief Fire Officers Association and ourselves to drive forward. I would like to echo that, I think the retained are an absolutely vital part of the service for the future and how we develop that from the community safety perspective is one of the key challenges over the next year or two".[245]

The ODPM told us that CFOA were preparing a report prioritising the recommendations of the retained review and that an action plan for implementation would then be developed. "Real developments" were expected within two months.[246] We recommend that the Government provide a clear indication of the reforms it intends to be implemented affecting the Retained Service, including target dates for key benchmarks and completion.

Other issues: leadership and staff development

102. The ODPM stated that there is a need to improve leadership within the FRS and told us that "another key issue for staff development is leadership".[247] The CFOA told us that "there is no doubt that much has been achieved through the leadership of professional fire officers and fire authority members".[248] On matters such as diversity, there have been pockets of good practice, demonstrated by leaders within the FRS. UNISON told us its members "believe [this] has helped to create a working environment which will attract and support diversity".[249] However, this is certainly not the case across the FRS, and UNISON emphasised that "in some cases, UNISON is seeing the re-introduction of some militaristic practices".[250] The Audit Commission said that "on the whole, fire and rescue authorities have good managerial leadership" but at a higher level "some senior managers have not adapted [to]the cultural change required by a modern fire and rescue service".[251] The leaders within the Fire and Rescue Service will be instrumental in ensuring that the modernisation programme succeeds. The Government will be consulting on introducing initiatives to improve the quality of leadership; this should be done sooner rather than later.[252]

103. In addition to needing strong leadership, the training and development of staff is a key issue for the FRS. As part of modernisation, the ODPM introduced a new Integrated Personal Development System (IPDS) which applies to all staff (uniformed and non-uniformed) and aims to use a competency-based approach to target individual needs of the workforce.[253] The West Sussex FRA supports the IPDS but is concerned that "it is becoming too bureaucratic and costly to the point that it has the potential of affecting the proper delivery of the Fire and Rescue Service".[254] We recommend that the Government regularly review the FRAs' attitude toward the Integrated Personnel Development System scheme to ensure that it is not viewed as merely a bureaucratic and burdensome exercise.

205 The Future of the Fire Service: reducing risk, saving lives ('the Bain Review'), 16 December 2002, Executive Summary, Para 10. Back

206 HC 43 Back

207 Ev 5 Vol I Back

208 Annual Report 2005, ODPM, Cm 6526, June 2005, page 105. Back

209 A target from when the FRS was the responsibility of the Home Office. Back

210 Ev 9 Vol I Back

211 The Fire and Rescue Service National Framework, ODPM, December 2004. Back

212 Ev 88 Back

213 Ev 93 Back

214 Ev 96 Back

215 Q 99 Back

216 Ev 6 Vol I Back