Memorandum by the Chief Fire Officers'
Association (CFOA) (FRS 27)
1. EXECUTIVE
SUMMARY
1.1 Executive summary
1.1.1 The Chief Fire Officers' Association
(CFOA) is the professional organisation for principal fire officers
in the UK and this memorandum encourages a clear vision for the
future of the Fire and Rescue Service (FRS) over the next 10 years,
to meet the risk needs of tomorrow's society and its people.
1.1.2 CFOA' s submission urges the availability
of timely and detailed information in respect of the Outline Business
Case, governance and funding arrangements of FiReControl and FireLink.
Additionally the necessary guidance, structure and accountability
of Regional Management Boards (RMBs) to be able to be accountable
for the delivery on these national projects.
1.1.3 Our comments outline the tremendous
achievements made in fire prevention but also seek to gain recognition
that life-safety sprinklers will save lives and significantly
reduce injuries and damage to the fabric of society. CFOA desires
to see these systems being fitted into all new school buildings
or in major refurbishment schemes as well as in all high-risk
residential and other residential and domestic properties.
1.1.4 CFOA want to ensure that the FRS is
properly recognised as an integral stakeholder in community safety
and cohesion, in the Government's wider agenda of cross-departmental
policies and strategies.
1.1.5 CFOA believes that a robust structure
and funding mechanism must be maintained which ensures that Authorities
are able to meet the business demands we face, in an economic,
efficient and cost effective structure that meets the risk needs
of our societies including the securing of national, regional
and local resilience.
1.1.6 This paper proposes a strengthening
of the governance model for Fire arid Rescue Authorities (FRAs)
which will ensure not only local political representation but
also representation from the business community. Similarly, we
urge the institutional reform of the National Joint Councils (NJC)
to achieve a separate middle-manager negotiation forum and a seat
by right, for the Fire Officers Association (FOA) and Retained
Firefighters Union (RFU) on the NJC.
1.1.7 Our commentary recommends the completion
of the review of FSS and funding mechanisms for the FRS to ensure
that we have the appropriate resources to secure the delivery
of efficient and effective services to meet the risk needs of
our communities.
1.1.8 The Association believes that it is
important to create within the FRS, an industrial relation environment
which engenders trust, respect and a proactive approach to negotiation
together with consultation within national, regional and local
contexts.
1.1.9 We also recommend in this submission
that a clear definition and recognition in terms of operational
response, assurance and competence be provided, to ensure that
the Service and its people are skilled, experienced and qualified
to command critical incidents. Additionally we need legislation
in place which makes it a specific offence to hinder, interfere
or obstruct not only firefighters but all emergency workers in
the execution of their duties.
1.1.10 Diversity remains an area that merits
continual attention and CFOA believes that a renewed emphasis
is required to drive this agenda forwards. CFOA is keen to work
with Government and other key stakeholders to ensure that Diversity
issues are kept properly in focus.
1.1.11 In joint working between the Emergency
Services the memorandum acknowledges that there are economies
of scale to be realised. Indeed, the paper provides examples of
good practice around the country but recognises that there are
still more tangible benefits yet to be realised in saving lives.
1.1.12 CFOA comments in summary, that to
achieve a clear agenda the Government' s 10-year vision for the
FRS must be set out succinctly. The memorandum agrees that the
performance of the Service and its people in driving down the
risks our communities face has been first class, however the pace
of change in other essential areas has been limited and that there
is a need to maintain the momentum of modernisation if we are
to create safer communities.
1.1.13 CEGA acknowledge that this will entail
some difficult issues regarding governance, structure, funding,
institutional reform and industrial relations being addressed
by all stakeholders in firm partnership.
2. INTRODUCTION
2.1 The CFOA submission
2.1 .1 CFOA and its members welcome the
opportunity that the Inquiry presents, particularly at this juncture,
as this facilitates both a review of where we are now and what
still needs to be done. This Inquiry will certainly provide a
useful impetus to the modernisation and reform agenda. There is
no doubt that much has been achieved through the leadership of
professional fire officers and fire authority members, supported
by other stakeholders which has resulted in safer communities.
2.1.2 CFOA and its members have a significant
contribution to make particularly in terms of providing leadership,
direction, technical expertise and support in taking forwards
the FRS modernisation programme. The Association would also wish
to see the development of stronger formal liaison, where cross-cutting
issues, affecting a wide range of Government departments and ministries
could be properly represented.
2.1.3 This inquiry focuses partly on the
specific issues surrounding the introduction of Regional Control
Centres and FireLink. The Association's views on these matters
are in Section 3 below, however there is also a more general focus
on a range of issues that are being moved forward as a part of
the modernisation agenda. These matters, in the context of the
general picture within the FRS are covered in Section 4 onwards.
2.2 The Chief Fire Officers' Association
2.2.1 CFOA is the professional organisation
for principal fire officers in the UK. The Association was formed
in 1974 following local government re-organisation to allow principal
fire officers the ability to meet and discuss fire related or
government influenced matters. Membership of the Association comprises
almost all the senior management of fire and rescue services in
the United Kingdom and is the driving force in managing change
and implementing reforms in the service.
2.2.2 The Association provides the chair
and secretariat to the Practitioners Forum, the body through which
practitioners and stakeholders in the fire community work together
to provide advice to Government on policy development, ensuring
that specific policy initiatives are consistent with working practices
on the ground and are deliverable.
2.2.3 CFOA strongly welcomes the opportunity
to review the progress that has been made by the FRS since 2003.
Much has been achieved but a significant amount remains to be
done. CFOA and its members are actively promoting, implementing
and delivering real changes in the Service and, working in partnership
with all stakeholders, we remain committed to the process. The
Association would welcome the opportunity to give professional
oral evidence to the Inquiry.
3. TERMS OF
REFERENCE—QUESTIONS
1A AND
1B
3.1 Regional Control Centres and FireLink
3.1.1 The Association is fully committed
to the FiReControl and FireLink projects, and continues to support
their implementation. The rationale behind these two initiatives
is to secure national, regional and local resilience in the provision
of our services as well as securing effective and efficient structures.
3.1.2 There is no doubt that the FiReControl
and Firelink projects are an integral part of the modernisation
agenda, as well as securing the essential levels of resilience
required by Government and the FRS. These projects should provide
an operating framework that will act as an enabler of change,
providing opportunities to develop new and efficient ways of working
across regional boundaries. They should however, be seen in the
broader context of change and modernisation within the FRS.
3.1.3 The successful implementation of FiReControl
and FireLink should deliver tangible benefits to local communities
and council taxpayers. CFOA remains supportive and is working
with the Office of the Deputy Prime Minister (ODPM) and the Local
Government Association (LGA) towards the delivery of a more resilient
service to provide enhanced interoperability within the FRS and
also with the Police and Ambulance Services. In addition we would
expect to see resultant increases in operational effectiveness
whilst providing greater value for money for taxpayers.
3.1.4 However, we do have a number of outstanding
concerns with regard to the Full Business Case, the discharge
of legal responsibilities, clarification on governance arrangements
and the ultimate accountability for the service. Whilst we have
no reason to doubt ODPN4's business case assumptions, we are disappointed
that the absence of the Full Business Case gives rise to perceptions
of a lack of transparency, reinforcing the arguments of those
opposed to the project.
3.1.5 Our concerns include:
— Statutory duties of fire and
rescue authorities—decisions expected without full information
being available.
— Full acknowledgement of fire
and rescue authorities' interests and concerns by ODPM.
— Final Outline Business Case—transparency
of costs.
— National Resilience is not an
individual fire and rescue authority responsibility, therefore
they should not accrue additional costs.
— Additional costs of fire and
rescue authorities not met in structured way through New Burdens
process.
— Uncertainty and lack of ownership
of governance arrangements.
— Capacity issues for individual
fire and rescue authorities.
— Transparency in operational
response—citizen confidence.
3.1.6 Whilst the successful implementation
of FireLink will be a significant step forward in communication
between fire appliances and emergency service control centres,
the absence of hand-held radio communication at the scene of operational
incidents will potentially lessen the effectiveness of the FRS.
It would therefore be prudent to review the overall expectations
of the project in light of the increasing and evolving operational
role of the FRS, with a view to including hand-held radio communication
as an integral component of the FireLink project. Our concerns
include;
— No business case for Firelink.
— No information on financial
or other ongoing resource implications of Firelink.
— Lack of Business Case that underpins
any proposed governance model for Fire Controls.
3.1.7 It is difficult to envisage and not
realistic to expect that RMBs will have the ability, capacity
or resources to meet Government expectations in delivering these
projects.
3.1.8 A significant risk impacting upon
the implementation of the FiReControl project is the continuing
stance of the FBU and their resistance to any change to the existing
47 Fire Control Rooms. Resolution of issues surrounding their
objections must be reso1ved at a national level, without resort
to industrial action. The provision of cost effective, efficient
and resilient services for our communities must be the determining
factors.
4. TERMS OF
REFERENCE—QUESTION
2A
4.1 The Fire Prevention Agenda
4.1.1 The Select Committee are seeking specific
evidence of progress in terms of "Fire" Prevention work
within the service. Much work has been done in this area and a
great deal has been achieved. This is, however, a narrower focus
than should perhaps be taken within this inquiry. The FRS has
been making the Integrated Risk Management Plan (IRMP) a reality
and has been expanding work aligned with its new statutory duties,
including transport incidents and civil emergencies including
the preparation for major or catastrophic events. This has been
recognised by increased emphasis in the draft National Framework
for 2006-08 currently circulating for consultation.
4.1.2 However, the terms of reference of
this inquiry fail to recognise the work being done by the ERS
in many other areas to manage local risks, which if not properly
addressed, will only result in a partial assessment of the picture.
4.1.3 Through resilience forums and in partnership
with local authorities and other emergency services, the ERS (Category
1 Responders under the Civil Contingencies Act) is engaging fully
in this wider risk agenda. The rationale of the prevention activities
of the service are to drive down risks in a way that is pertinent
to local communities and not necessarily to be wholly focused
on fire. To use scarce resources to input messages about fire
safety and ignore road safety in a community where road traffic
collisions cause much more misery and death can not be an appropriate
response.
4.1.4 In terms of ensuring that we have
in place a FRS which is structured, equipped and resourced to
meet the risk needs of our communities in 2015 it is essential
that we agree a clearly defined vision of the service which enables
the FRS to meet the future needs of our communities. There is
an essential requirement for Government to have in place an inter-departmental
working strategy, to ensure that across the ODPM—Health—Education—Treasury
Social Inclusion—Exclusion; that the contribution the ERS
makes to the wider agenda of safety and social well-being can
be fully recognised.
4.2 Achievements
4.2.1 The thrust of this Inquiry is to determine
whether the "prevention is better than cure" message
has been implemented by the FRS. The statistics here speak for
themselves. The Public Service Agreement (PSA) Fire Targets for
2010 require Fire and Rescue Authorities (FRAs) "To reduce
the number of accidental fire related deaths in the home by 20%
averaged over the 11 year period to 31 March 2010". Similarly
the target for Arson Reduction is "To reduce by 10% the
number of deliberate fires by 31 March 2010 . . ."
4.2.2 The FRS are well on the way to achieving
the first target within five years of the Agreement and have more
than doubled the projected target for Arson Reduction within the
first four years. In an agreement of this type, it is axiomatic
that on reaching agreed targets, the FRS are afforded greater
financial freedom and financial support and CFOA would wish to
explore this process as part of the Inquiry.
4.2.3 In real terms we can claim that at
least 78 more people are walking our streets today as a result
of our fire safety initiatives. Recent statistics for 2004-05
clearly demonstrate that fire deaths and injuries are continuing
to reduce. For example: deaths were down by 9% and injuries by
11%. In addition, during 2003-04 deliberate fires were down by
21% and road vehicle fires down by 25%.
4.2.4 An important underlying concern that
needs to be continually addressed is the apparent lack of public
awareness and understanding of the significant achievements that
have been made. This is clearly a long term process and CFOA believe
that greater emphasis needs to be placed on national awareness
campaigns and local education initiatives to ensure that public
attention is brought to the benefits of statutory change and modernisation
in the FRS.
4.2.5 However, the challenge remains to
continue to drive down fire deaths and injuries even more, whilst
also recognising the service's work in reducing the incidence
and consequences of other emergencies. The modern FRS is the primary
responding agency to civil emergencies and CFOA believe that this
must be fully recognised, understood and appropriately resourced.
4.3 Sprinklers and schools
4.3.1 The installation of life-safety sprinklers
systems used in a variety of contexts will without question, result
in immediate and sustainable improvement in the medium-term in
the number of lives saved, as well as a reduction both in injuries
and the cost of fire in our communities.
4.3.2 The likelihood of school fires remains
very high due to a combination of social factors and the potential
consequences of such fires are disastrous. This is one particular
area of risk that CFOA is currently placing at the top of its
agenda and will use every opportunity to promote.
4.3.3 It is our unequivocal view that every
new school and major refurbishment to a school building must include
the installation of sprinklers. As well as the primary life saving
potential, reducing the cost of school fires and minimising the
impact on children's education within our communities and the
implications for the insurance industry and teaching professions.
4.3.4 We believe the business case for legislative
support in this area is overwhelming and invite the inquiry to
support this view. In the longer-term we would wish to see life-saving
sprinkler systems fitted on a similar risk-assessed basis, to
high-risk residential and other residential and domestic properties.
Indeed, following the Government's recent announcements on the
number of residential properties to be built over the next 20
years, particularly with over 500,000 houses in the south east
alone, CFOA believe that there is an opportunity to consider fitting
domestic sprinklers to all new homes. Evidence from the USA and
New Zealand is unequivocal; in that domestic sprinklers save lives,
protect property and reduce the resource impact on the NHS and
social services.
4.4 A balanced approach—Prevention—Protection—Response
4.4.1 The Government has now streamlined
fire safety arrangements with the introduction of a new framework
that brings together more than a 100 different pieces of earlier
legislation. These changes come into effect in April 2006 with
the introduction of the Fire Safety Order, and will nearly double
the number of premises subject to detailed regulation. FRAs are
planning to deal with expansion within current resources by adopting
a risk-based inspection regime where the frequency of visits to
check premises reflects the assessed fire risk in those buildings,
however the resource implications will need continual review as
the new regime develops.
4.4.2 Fire Authorities are now in their
third year of determining the allocation of resources on the basis
of local risk, through IRMPs. These have been informed through
wide stakeholder consultation and involvement of the general public.
These plans take advantage of the flexibility provided by the
new Fire and Rescue Services Act to provide emergency cover which
reflects the patterns of risk across our cities, urban and rural
areas. However it is apparent that businesses, industry &
commerce and the insurance sector still remain concerned about
issues such as attendance times and the weight of attack, as balanced
against other community fire safety initiatives.
4.4.3 The terms of reference for this inquiry
separately address issues of resilience within the Fire and Rescue
Service, which CFOA has provided in a specific response at paragraph
7 to this memorandum. However, the Association is concerned about
the integration of IRMPs within resilience planning. Currently
there is an apparent separation between planning for "day
to day" risks (IRMP) and the planning for more significant
resilience requirements for potential major and catastrophic incidents
(Resilience Forums).
4.4.4 The bulk of the response resources
that will deal with major/catastrophic incidents are also the
same resources that address the background risks which suggests
that separate planning is neither effective nor efficient. CFOA
would like to see a requirement to include major and catastrophic
incident planning within IRMPs. Some authorities already do this,
however it would be far better for all to do so in a consistent
manner. An integrated risk management plan can only be truly "integrated"
if it seeks to address each of the FRAs resources to all of the
risks that must be faced.
4.4.5 The new RRO to be introduced as the
Fire Safety Order 2006 and IRMPs obviously provide a balance between
prevention and response. This has involved extensive change in
terms of culture for both the Service as an enforcing authority
and the business community with whom it works. The impact of these
changes upon the business community including many small to medium
sized enterprises who rely heavily on advice and assistance from
the fire and rescue service on fire safety issues, means that
they will have to become much more self-reliant. It is essential
therefore that Government and FRAs consider how best they can
support not only businesses but also communities during this significant
period of change.
4.4.6 This anticipated expansion and development
of the legislative Fire Safety regime builds on the ERS and CFOA's
discreet contribution to the introduction of The Licensing Act
2003 and The Housing Act 2004 and the development of technical
expertise and revised practises.
4.5 Differing Standards
4.5.1 Almost uniquely, and clearly without
intent, the Government has introduced different levels of fire
safety for different residents of the UK. It has affected these
disproportionate standards with the introduction of the Scottish
Building Standards with its positive risk assessed approach to
the mandatory installation of life-safety sprinklers in certain
properties. A similar provision would appear to be essential in
the Revised Building Regulations and in particular, the Approved
Document "B".
5. TERMS OF
REFERENCE—QUESTION
2B
5.1 Governance
5.1.1 The Association has outlined in previous
submissions to Government, that the governance structure and funding
of the FRS needs further reform. It is believed that the current
structural models hinder the delivery of efficiency objectives
through the duplication of effort and poor economies of scale.
5.1.2 The Comprehensive Performance Assessment
(CPA) review and CFOA have both commented that Fire Authorities
serving larger but not necessarily denser populations do have
the scope and resources to better meet the growing capacity requirements
and demands now faced by the ERS, which can lead to improved performance.
Although we recognise that a one-size model may not necessarily
fit all economical, geographical and environmental circumstances,
we do however, require Authorities which are able to organise
and reform with appropriate resources in place, to secure the
proper delivery of services.
5.1.3 It is quite clear that in this complex
world a newer, more plural model of governance would serve us
better than the current plethora of solutions. Issues of sound
strategic advice, guidance and scrutiny are rightly provided by
elected members and by national agencies and organisations such
as ODPM and LGA. Nonetheless it would be appropriate to strengthen
the existing governance model by encouraging the more formal involvement
of co-opted members from the business community, insurance sector
and other agencies. It is only in this more representative forum
in a community partnership that the quality of decision making
will be enhanced.
5.1.4 Like all public sector bodies, there
are challenges to deliver value for money to which we must all
rise. Taking waste and duplication out of the service by rationalising
the structure or achieving economies of scale through collective
procurement (FireBuy) will undoubtedly free up resources for other
activities.
5.2 Institutional Reform
5.2.1 In previous submissions, CFOA called
for radical reform of the institutional basis of the FRS and we
were pleased to see that in many aspects, our concerns were addressed.
Indeed the advent of the Practitioners Forum, the Business and
Community Safety Forum, and importantly the Minister's Sounding
Board have all proved to be of great benefit in moving the service
forward in a dynamic and flexible environment. Nevertheless, we
do have some small concerns regarding how the business and safety
forum operates and interrelates with the other forums.
5.3 Staff engagement and Leadership
5.3.1 The people who work in the FRS are
its most important and valuable asset. For the service to be truly
effective it must lead its staff towards new ideas and approaches.
Local communities are served by local firefighters who must, in
turn, build trust and engagement across a broad agenda within
those communities.
5.3.2 Not all of the staff in the FRS yet
understand the service's new direction and many are still not
convinced that such change is even necessary. CFOA is fully aware
of its leading role in setting clear direction for the service
at a time of exciting change. The service needs to undergo a significant
cultural shift from simply telling its staff "what to do"
towards engaging them in "why" the change is fundamental
and absolutely necessary.
5.3.3 To gain real commitment, staff need
wherever possible, to believe in the change we are bringing about
and to be able to see the purpose and direction of the service,
understanding particularly how it affects them personally. Leadership
is the key ingredient here and all the strategic stakeholders
within the service have a role to play in securing a common direction.
CFOA is committed to simplifying and communicating the message
of change to FRS staff and this is seen as a fundamental issue.
5.3.4 In this environment of significant
change, the importance of sound, open, transparent and respectful
industrial relations cannot be over emphasised. In order to run
a successful cost effective and efficient organisation there must
be commonality of trust, integrity and respect which will provide
an environment where all stakeholders can ensure that national,
regional and local negotiations and consultation are conducted
in proper partnership.
5.3.5 It is evident that change in terms
of the NJC has been less than positive. Indeed some 18 months
further on, its constitution has still not been agreed or reviewed.
If the Service is to move forward within the present industrial
relations climate it is essential that immediate reform of the
NJC, its governance and structure, takes place as quickly as possible.
In particular we would argue strongly for the simple step of ensuring
that the RFU and Fire Officers Association (FOA) have seats, by
right, on the NJC and play a full part in industrial relations,
negotiation and consultation. Indeed it is already evident that
many FRAs have provided recognition to RFU and FOA in their industrial
relations processes.
5.3.6 Further we see as essential the creation
of a separate negotiating body for middle managers. This would
ensure that middle managers have the correct level of representation
relevant to their role and that management issues are dealt with
separately from general work force issues.
5.3.7 Similarly, with the introduction of
wide ranging reforms in all government departments and ministries
and their consequential impact and opportunity for partnership
working with CFOA and the ERS, an inter-departmental/inter-ministry
forum would be a positive and welcome move. This forum would afford
CFOA the opportunity to contribute in the earliest stages of strategy
or policy formulation in areas such as Sustainable Communities,
Regeneration, Crime Reduction, Health as well as Road Traffic
Incidents and the Built Environment.
5.3.8 It is apparent that one of the major
barriers to modernisation in the Service has been the stance of
the leadership of the Fire Brigades Union (FBU). The FBU continues
to resist meaningful dialogue about change within the FRS, preferring
to maintain the status quo and, on occasions, put the public at
risk by taking industrial action in order to preserve dated working
practices. It is hard to see how this best serves the interests
of the FBU membership, the fire fighters, particularly when future
pay negotiations in 2007, will be set against the backdrop of
their limited delivery in the modernisation programme.
5.3.9 CFOA believes that the FBU leadership
is distancing itself from the maj ority of its members and is
being led by a radical minority with a political agenda, rather
than being supportive of their members' interests. The service
has very able, skilled and committed staff who have shown enormous
flexibility when they have taken-on a range of new challenges
modern-staff require modern industrial representation and this
is clearly not a present being provided.
5.4 Attacks on Firefighters
5.4.1 In support of the very difficult job
that Firefighters execute, CFOA is extremely concerned about the
levels of hindrance, abuse and physical attacks that frontline
firefighters now have to endure as they go about their duties
at operational incidents. The FRS has a duty to ensure the safety
of staff in all situations and for some time the service has been
investing significant resources in order to mitigate the effects
of such attacks.
5.4.2 Despite a whole range of strategies
being in place, that seek to prevent such attacks, through to
protecting staff when they happen and finally ensuring whenever
possible, that the most severe penalties are imposed on those
found responsible; the situation continues to worsen. Many of
the incidents involve interfering with FRS equipment and hindering
firefighters as they go about their business and which could have
significant safety implications through to intimidation, abuse
and physical assault. Examples include water supplies being turned-off
while firefighters are inside buildings extinguishing fires, gas
cylinders being placed in vehicles which are then ignited, attacks
using stones, fireworks, firearms, knives and other missiles and
fires being set to draw in the FRS in a deliberate affront.
5.4.3 CFOA believes that time is right to
call for immediate legislation making it a specific offence to
hinder, interfere or obstruct not only firefighters but all frontline
emergency workers in the execution of their duty. CFOA welcomed
similar legislation in Scotland and places full support behind
Alan Williams MP and his private members bill seeking the establishment
of such legislation in England and Wales.
5.5 Finance and Resources
5.5.1 Efficiency savings alone, will not
allow us to deliver the stretching targets in this increasingly
complex and operationally demanding landscape, which is the new
reality in which we operate. This is not only about cutting the
cake into bigger slices but also about creating a bigger cake.
5.5.2 The recent report of the Fire Expenditure
Working Group and the Fire Finance Network has concluded "If
the agenda is to progress at the rate needed in order to release
the efficiency gains envisaged, it will require some investment
and pump priming". Both capital and revenue resources are
needed to support the new and expanded functions in areas such
as New Dimensions, Community Fire Safety and Community Safety
and developing the broader based rescue role.
6. TERMS OF
REFERENCE—QUESTION
2C
6.1 Promoting Diversity
6.1.1 Promoting diversity remains a key
issue for the Association in terms of both the service delivery
and fire authority roles as a key employer. We fully support the
development of national policies and procedures as well as working
with the LGA and Fire Authorities to ensure that the workforce
properly reflects the diverse communities that we serve. This
will not only help provide more responsive services, but will
also help to build confidence in all parts of the community showing
that we understand their particular needs and aspirations.
6.1.2 Local Fire Authorities have already
established Recruitment and Diversity Teams with Elected members
playing key roles in many aspects of these initiatives, including
the appointment of diversity champions.
6.1.3 The proposed revisions to the national
point of entry selection tests which are based on job related
tests will help to facilitate the recruitment of more people from
the target groups and this is to be welcomed, as long as there
is a recognition that the role of the operational firefighter
remains a physically demanding one that demands appropriate levels
of physical strength and fitness.
6.1.4 The current national targets for the
recruitment, retention and progression of women and ethnic minority
staff are to be revised and expanded to include the whole of the
FRS workforce which is a welcome move. CFOA remains committed
to both internal cultural change initiatives and also to a comprehensive
community outreach programme as the best way to achieve our goal
of a more diverse work force.
6.1.5 The overall commitment of the FRS
to equality and diversity is without question. However there is
a need to ensure that all stakeholders work in partnership to
an agreed agenda, to ensure we have a workforce which reflects
our commitment as well as recognising their specific cultures.
6.1.6 Innovative programmes of community
safety initiatives designed to meet equality objectives take place
throughout the UK, these have been developed in partnership with
differing parts of the community, with different groups and particularly
vulnerable people in Lard to reach areas. However the FRS are
not complacent and recognise that much more needs to be done to
ensure that we create a workforce which reflects and supports
our communities—CEGA remains committed to these objectives.
6.1.7 The Association believes that some
of the attention and scrutiny on diversity issues has been diluted
by other major initiatives such as modernisation and civil resilience.
CFOA feel that a renewed emphasis on diversity is required, by
maintaining awareness and closely monitoring performance against
the defined targets. The Association is keen to support the Government
and other key stakeholders in moving the diversity agenda forwards
and would welcome joint discussions about how this could best
be achieved.
7. TERMS OF
REFERENCE—QUESTION
3
7.1 Emergency Services Joint Working and Resilience
7.1.1 There are economies of scale to be
realised through joint working between the Emergency Services.
Indeed, there are examples of good practice around the country,
particularly in terms of joint working between the Fire and Rescue
Service and the Ambulance Service, such as the co-location of
services, but there are tangible benefits yet to be realised in
saving lives.
7.1.2 There is no doubt that the introduction
of co-responding schemes and/or the use of defibrillators has
benefits for the public. CFOA believe that if the FRS are to extend
this role more formally, the ODPM and Department of Health should
agree a Memorandum of Understanding on behalf of the ERS for a
co-responding protocol.
7.1.3 The main barrier to joint working
is the lack of co-terminosity between services, the different
governance models, the different funding mechanisms and financial
regulations and, more importantly, the lack of joint policies
at governmental level.
7.1.4 In 2001, the Home Secretary (then
Jack Straw) requested the Presidents of the three emergency services
associations (ACPO, CACFOA, ASA) to prepare a joint report on
collaboration working. The report was duly commissioned, agreed
and compiled and presented to the Home Secretary. The report made
16 recommendations to improved joint working, however, many remain
outstanding today—not the least being Government's priorities,
its vision of where it sees the "blue light" services
in the future.
7.1.5 Given the speed and complexity of
change facing the fire and rescue service and the focus now being
placed on prevention, CFOA believes it is fundamental to ensure
that the operational response of the fire and rescue service continues
to be resourced at a level that maintains not only the safety
of our staff and the general public, but also the confidence of
the communities that we serve and that of all other fire and rescue
service stakeholders.
7.1.6 The joint working arrangements put
in place between emergency services to deal with a terrorist incident
were put to the first significant test on 7 July 2005 in London
CFOA members from London commented on the arrangements and events
of that day being very similar to the preparatory development,
exercises and testing that had taken place prior to that event.
This is a testament to the work that had taken place up to that
point. Similar arrangements are being developed in resilience
forums throughout the country.
7.2 Investment to Date
7.2.1 CFOA welcomes the investment that
has been made to support the New Dimensions programme and the
opportunity to work in partnership with the Civil Resilience Directorate
to provide an enhanced response for Chemical, Biological, Radiation
and Nuclear incidents. Whilst there is much still to be done,
the availability of Mass Decontamination Response Units, Detection,
Identification and Monitoring equipment, Urban Search and Rescue,
and High Volume Pumps provides for a far higher level of response
not only to large scale terrorist incidents but also for local
incidents that occur on a daily basis. It is clear that this new
provision is becoming fully integrated into local response arrangements.
7.2.2 The success of the programme to date
has been widely acknowledged, nevertheless there is still some
way to go. For example, the coordination of New Dimension assets
through a National Coordination Centre is still being developed
together with the Long Term Capability Management of the New Dimensions
assets to support sustainability through future years. CFOA will
continue to play its part in ensuring that these important elements
are brought to fruition.
7.2.3 We welcome the investment made to
date in respect of the New Dimension programme and are pleased
we have been able to work so closely with those responsible in
rolling out new vehicles, new equipment and training to provide
an enhanced service at local, regional and indeed national level
to enable the service to respond to the unprecedented threats
that are likely to arise.
7.3 Operational Assurance
7.3.1 Although the CPA process was only
applied to the FRS for the first time in 2005, we were disappointed
that it did not contain a specific element which looked at the
effectiveness, performance and safety of it's operational services
and the way in which those services are delivered.
7.3.2 CFOA believe that to maintain the
confidence in the service there needs to be a comprehensive, transparent
and impartial review process to look at all elements of operational
service delivery, which aligns with the CPA regime. We were keen
therefore to work closely with Her Majesty's Fire Services Inspectorate
and begin to develop such a process that could be applied to those
English fire and rescue authorities by way of self assessment
and in the longer term, as part of the next round of the CPA process.
We would wish to see this work continue and be supported.
7.4 Operational Competence
7.4.1 The modernisation of the service has
provided new opportunities not only for developing our own staff
but also for attracting a more diverse range of staff from outside
of the service. Whilst we welcome these changes in the knowledge
that many of the duties of fire and rescue service managers can
be discharged without having to have progressed through all of
the roles within the uniformed service, we believe that the management
of critical incidents at all levels, remains a key element of
the role of many fire and rescue service managers.
7.4.2 We believe that it is important for
fire and rescue authorities to be clear in the responsibilities
of all fire service managers and the duties they perform. If authorities
determine that their staff should undertake command of critical
incidents, the personal skills, knowledge and attributes to do
so will need to be identified and an appropriate development programme
implemented to ensure competence in this vital area.
7.4.3 We believe that any lack of clarity
about the role of staff or the placement of an individual in a
critical decision-making position, without the provision of appropriate
supporting mechanisms, will place the Authority and the individual
at significant risk. CFOA would wish to work therefore with ODPM,
LGA, the Fire Service College FSC and others, to research and
design an appropriate programme to support the development of
critical incident commanders as an element of a multi-tier entry
system.
7.4.4 Further Work
7.4.5 There remain two areas of concern
which need to properly addressed:
— Water Rescue—The
resources to provide a national water rescue capability are within
scope of the New Dimensions programme, however at this point in
time no funding exists to develop this capability. In addition
whilst we welcome the outcome of the consultation exercise on
"Non Fire Emergencies for the FRS" we believe that there
is a lack of understanding by the authors in to what constitutes
Water Rescue and the appropriate resources required to provide
such a capability. CFOA wish to see the necessary investment and
resources to allow the FRS to undertake this role safely and effectively.
— Support Arrangements—The
second area of concern relates to the support arrangements that
are presently in place, by way of regional teams funded by CRD,
to support the New Dimensions programme. Whilst we acknowledge
that any such support arrangements should be regularly reviewed
to ensure they remain cost effective, we would want reassurances
that any future structures will be robust enough to continue to
deliver the necessary high level of support.
8. SUMMARY
8.1 Vision for the Future
8.1.1 CFOA are already involved in the work
to progress a 10-year vision for the FRS, however, it is important
that this is developed sooner rather than later and that this
development involves all stakeholders. The FRS of the future must
be able to meet the risk needs of our dynamically changing communities
in a cost effective and efficient manner. Future demands on the
service will increase as will public expectations and in order
that there is a clear agenda to meet these challenges, the 10-year
vision of Government must be set out.
8.2 Conclusion
8.2.1 There is no doubt that the performance
of the Service and its people in driving down the risks our communities
face has been first class, however the pace of change in other
essential areas has been limited.
8.2.2 We need to maintain the momentum of
modernisation if we are to create safer communities; this will
entail difficult major issues being addressed by all stakeholders
in partnership. Issues regarding governance, structure, funding,
institutional reform, industrial relations and a clear vision
for the Service of the future must be actioned in the short term.
8.2.3 The Inquiry at this juncture in the
modernisation and reform programme of the FRS is wholeheartedly
welcomed by CFOA.
9. REFERENCES
9.1 Listing
9.1.1 The following references support this
memorandum:
— CACFOA Submission of Evidence
to the Independent Review of the Fire Service —Communities
at Risk (October 2002)—( Copy attached).
— CACFOA Final Submission of Evidence
of the Independent review of the Fire Service —Communities
Safety First (October 2002)—( Copy attached).
— CFOA Annual Report 2004-05—(Copy
attached).
— Draft Strategy for Children
and Young People (November 2005).
— The Scottish Building Standards.
— Draft Approved Document associated
with Building Regulations Part B—Fire Safety.
— Fire Statistics Monitor—Issue
No 3/05.
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