Memorandum by the Greater Manchester Fire
and Rescue Service (GMFRS) (FRS 28)
EXECUTIVE SUMMARY
1. Greater Manchester Fire and Rescue Service
welcomes the opportunity to make this submission to the Select
Committee on The Office of the Deputy Prime Minister in respect
of The Fire and Rescue Service Inquiry.
2. Our track record over many years demonstrates
that we have been very proactive in implementing innovative changes
to the way we work. These changes have resulted in significant
improvements to the service we offer and in driving down fire
deaths.
3. We have reviewed our strategic vision
and mission statement in light of the Integrated Risk Management
Plan and the Comprehensive Performance Assessment process in order
to provide a focus for modernisation. Our vision statement is
"Making Greater Manchester a Safer Place
by being a modern, community focussed and influential Fire and
Rescue Authority."
4. We have championed the modernisation
agenda; we have built on our successes; we are now looking to
improve the service further. The modernisation agenda allows us
to look for innovative ways of providing future services that
are not as constrained as in the past. The introduction of the
national framework and greater freedom to reach locally negotiated
agreements has meant that efficient, economic and effective ways
can be found to meet local needs using a risk based approach.
5. We have negotiated and reached agreement
with the FBU on a number of modernisation issues, which has facilitated
this Authority moving forward with tangible improvements. This
has included rostering for duty, removal of beds, work routines
and flexible resource deployment at night.
6. Our submission includes several examples
of this philosophy and we trust it will be useful to the committee's
deliberations. We have provided suggestions at the end of each
example that in our view would greatly assist UK Fire and Rescue
Services in delivering a modern, flexible and innovative service.
We believe that these examples of areas of work in GMF&RS
are fundamental in delivering a modern service based on a sound
approach to Integrated Risk Management planning.
7. We have always been a proactive and influential
service in our contribution to national issues via the Chief Fire
Officers Association and a variety of Government steering groups
and committees. Our Chief Fire Officer is one of four in the country
that is shaping the future of the British Fire and Rescue Service
by actively leading on national workstreams on behalf of CFOA.
In our case these are New Dimensions and Operational matters.
Other Chief Officers lead on such issues as e-fire, Firelink and
FiReControl at national and regional level.
8. The modernisation agenda is intended
to facilitate change and introduce improved ways of working. We
are fully supportive of this. We feel however that in the drive
to introduce more modern approaches there is the potential to
lose sight of the operational aspects of the service. In particular
the move from intervention to prevention should not compromise
the ability of firefighters to effectively respond to operational
incidents and operate safely. It is vital that operational competencies
are a key part of the modernisation agenda.
9. It is recognised that 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. 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 as to what constitutes Water Rescue and the resources
required to provide such a capability. Within this memorandum
we have outlined the actions that this authority has taken to
ensure that we can undertake this role safely and effectively.
We would urge the government to consider and address the issue
of funding water rescues for the FRS.
10. This authority is extremely concerned
about the levels of hindrance, abuse and physical attacks that
its frontline firefighters have to endure as they go about their
duties at operational incidents. We have a duty to ensure the
safety of our staff in all situations and for some time have been
investing significant resources in order to reduce the number
and effects of such attacks.
11. We believe this to be a national problem
which is closely linked to social issues. We urge the Government
to consider the introduction of legislation similar to that in
Scotland that makes it a specific offence to hinder, interfere
or obstruct frontline emergency service workers.
INTRODUCTION
12. The County Fire Officer & Chief
Executive welcomes the opportunity to review the progress that
has been made by this Authority since 2003 in its drive to address
the Modernisation Agenda.
The Organisation in Context
13. In Greater Manchester we have driven
down the number of fire deaths over recent years to the lowest
level they have ever been. Greater Manchester Fire and Rescue
Service (GMFRS) is the second largest fire service in the country
employing around 2,700 people, 2,200 are operational staff, serving
an area of approximately 496 square miles, containing a culturally
diverse resident population of almost 2.5 million people, one
million domestic properties, and a wide range of commercial and
industrial complexes. There are a number of densely-populated
centres within the area ranging from very modern inner city developments
to traditional mill town communities that have expanded, diversified
and developed.
Diversity
14. Within Greater Manchester there is a
vibrant multi-cultural community, embracing a mix of people that
contribute to the area's vitality and success. Almost 9% of our
residents are from ethnic minorities. We are committed to providing
a high quality service to all sections of this diverse community,
ensuring equal and fair treatment in all aspects of our service
delivery, and are working hard through positive action to recruit
a more diverse, representative workforce.
Value for Money
15. We believe that our plans to make the
community safer from fire are making a real difference. We believe
that we operate in a most cost-effective manner which is reflected
in the fact that we are one of the least expensive metropolitan
fire authorities in the country.
Industrial Relations
16. Over the past 15 years this Fire &
Rescue Authority has operated in a turbulent, industrial relations
environment where almost every change initiative was rejected
by the majority trades union often with the threat of strike action.
This did impede progress, although it did not prevent improvement
in service delivery. The Authority is totally committed to modernisation
and has adopted a flexible approach to overcome barriers and resistance
to change.
Moving Forward
17. The Authority is keen to foster good
industrial relations with all representative bodies and all parties
and we are now working together to improve the industrial relations
climate. We have formally agreed and are now operating a Joint
Consultative Framework which is providing a structured forum for
consultation and is allowing us to move forward together. The
Authority has recognised the importance of effective communications
within the organisation and in 2004 recruited a Head of Corporate
Communications to operate at a strategic level within the Management
Team.
18. We recognise that there are opportunities
to move forward and have developed ur vision. We are implementing
significant and innovative changes to our organisation that will
lead to a more efficient and effective service in line with the
objectives set out in our Integrated Risk Management Plan (IRMP).
19. The Authority is confident that it is
in a position to see tangible results based on the building blocks
that it has put in place in previous years. With the modernisation
agenda and the focus of the IRMP there is an enthusiasm throughout
our service to complete and introduce the innovative initiatives
that are necessary.
Partnerships
20. We are working closely with our partner
fire services in the region, as part of the North West Fire and
Rescue Management Board leading on procurement and resilience.
We are also working closely at local level with the community
through Local Strategic Partnerships, as part of our commitment
to the crime and disorder agenda.
21. We have recently adopted a Borough Command
Structure to align ourselves to the 10 Metropolitan Boroughs we
serve. Each borough in Greater Manchester now has its own Borough
Command team who ensure we respond effectively to the risks that
the local communities face which facilitates partnership working
in the community.
22. In order to gain maximum efficiency
from our partnership working we are conducting a review in conjunction
with Price Waterhouse Coopers our external auditors. This will
provide a system whereby we can evaluate the specific benefits
of each individual partnership.
23. The national framework encourages the
use of regional teams for common services and as part of the North
West Fire and Rescue Management Board workstreams we are actively
exploring additional ways in which we can work together across
the region.
24. An 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.
25. This Authority 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).
26. 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. We would
like to see a requirement to include major and catastrophic incident
planning within IRMPs.
27. We are working with other emergency
services and exploring different ways in which we are able to
cooperate and improve our service provision to develop an improved
cost efficient service. We give examples within this memorandum
of initiatives of this type.
Operational Competence
28. 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
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 progress 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.
29. We believe that it is important to be
clear on the responsibilities of all fire service managers and
the duties they perform. Where staff undertake command of critical
incidents, their 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.
30. We believe 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.
Funding Issues
31. The resource base of the Fire and Rescue
Service (both revenue and capital) needs to be sufficient to enable
the wider role to be properly fulfilled. Without adequate long
term funding and increases to enable any new duties to be properly
implemented the Service will struggle to effectively manage and
resource the transition towards Community Fire Safety whilst maintaining
a high degree of operational readiness. Efficiency savings alone,
will not allow us to deliver the stretching targets in this increasingly
complex and operationally demanding environment.
32. The Service has made a very positive
start to the efficiency agenda and will continue to seek opportunities
for further improvement and reinvestment in the frontline service.
However the general pressure to keep Council Tax levels to an
affordable level can limit the ability to re-invest. The current
changes to the national financial/resourcing framework for the
service has created turbulence which will exacerbate this in individual
authorities.
33. 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.
34. It is important that the ongoing distribution
of resources reflects need and whilst a number of formula changes
have been introduced this year there are still anomalies to be
addressed by the formula review group eg the COMAH element.
THE ISSUES
Relationship between Dwelling Fire Frequencies
and Casualties and Population Socio-dynamics
The Issue
35. As with all local authorities there
is a series of Best Value Performance Indicators (BVPIs) for use
by Fire and Rescue Services. Fire and Rescue Services are grouped
into areas with similar populations and population densities so
that performance comparisons within these groups are more valid.
The BVPIs include measuring FDR1 (primary) fires per unit of population,
accidental dwelling fires and injuries (excluding precautionary
check-ups) and fatalities from accidental dwelling fires per unit
of population. Previous research has shown that the probability
of dwelling fires and casualties occurring is directly related
to socio-demographic factors. This however is not currently taken
into account in the BVPIs and the way they are reported.
What are we doing about the issue
36. Greater Manchester Fire and Rescue Service
are working in partnership with the ODPM to undertake research
to examine a number of possible factors such as the ODPM's Indices
of Multiple Deprivation and Mosaic classifications and relate
these to the total number of fire casualties and dwelling fires
in the relevant Fire and Rescue Services.
37. The project will also identify areas
of Fire and Rescue Service activity that are not currently measured
by a BVPI (such as special service incidents or casualties), and
suggest possible indicators for these.
Suggested way forward
38. We would urge that based on this research
Central Government adopt the principle of socio economic differentials
in the application of Performance Indicators. This is the basis
of how risks should be identified and managed at local level which
reflects the differences that exist across the country.
Operational Assurance
The issue
39. The Audit Commission's CPA of FRAs did
not directly assess operational effectiveness. Whilst the CPA
process takes into account the output indicators and the management
of some processes that contribute towards them, there are areas
directly related to operational effectiveness that are not covered.
What are we doing about the issue
40. We believe that in order to maintain
confidence in the operational aspect of our service delivery there
needs to be a comprehensive, transparent and impartial review
process. We are currently working with HM Fire Service Inspectorate
to develop a self assessment model.
41. Operational Assurance is not seen as
an isolated exercise but is about maintaining an ongoing commitment
that demonstrates our operational capability. As part of this
process, the organisation has devised a self assessment model
as part of its operational assurance utilising the self-diagnostic
"toolkit" contained within FRSC 21-2005 which is now
being deployed.
Suggested way forward
42. In our view the Government via the Audit
Commission should include an assessment of operational capability
in any future Comprehensive Performance Assessment process. In
addition there needs to be clarity about what arrangements will
be in place in the future to provide advice, assurance and guidance
on operational policy and procedural matters. We are pleased to
see that the latest correspondence indicates that consideration
is now being given to this matter.
Changing Duty Systems—Rostering for Duty
Project
The issue
43. Present duty systems in Fire and Rescue
Services have been in existence since the 1970's and are very
rigid. Under the current arrangements and due to the rigidity
there is limited scope to recruit people in amore flexible way.
The current system for wholetime operational fire fighters operates
on a rolling pattern of two 9 hours days followed by two 15 hour
nights. Everybody who is recruited works this system and there
is no flexibility to accommodate people with different needs.
What are we doing about the issue
44. Greater Manchester Fire and Rescue Service
have taken the lead role in developing new duty systems and flexible
employment contracts as part of its Human Resources Modernisation
Programme. The Rostering for Duty Project is an example of an
organisation developing an efficient and effective workforce utilisation
strategy that has delivered against a challenging efficiency target
whilst at the same time improving Service performance aligned
to the Authority's Integrated Risk Management Plan.
45. This project has delivered major change
by introducing flexible contracts for wholetime firefighters combined
with the introduction of a new duty system that delivers real
value for money for the organisation and results in significant
benefits and incentives for its employees. These employee benefits
include real flexibility to choose when you work and a policy
encouraging applications for flexible working that far exceeds
the legal minimum requirements. The design of the new system incorporates
opportunities for a wide range of employment contracts including,
for the first time, the option of part time working. This forms
an integral part of our equality and diversity strategy by removing
many of the barriers currently associated with shift working.
46. The project incorporates a powerful
web based technological solution for time, attendance and roster
management with employees having access to the system to view
their own roster, manage their time at work through duty swaps
and make other changes to work patterns. By using the new technology
it has been possible to centralise the management of crewing of
appliances and this has produced further efficiencies through
a reduction in the number of staff employed in this vital area.
47. The introduction of these major changes
has been achieved in a very challenging industrial relations climate
following the bitter national dispute. As a result of constructive
dialogue with representative bodies at early design stage, followed
by meaningful negotiation and employee engagement, a local Collective
Agreement was signed by the Fire Brigades Union and the Fire and
Rescue Authority in September 2005. This has resulted in cashable
efficiency savings in the form of direct salary costs of £2.3
million and yet maintained or improved emergency response performance
standards. The new duty system and flexible contracts also provide
real opportunity for incremental continuous improvement. All this
has been achieved within the existing National Scheme of Conditions
of Service and without need for any intervention in the form of
conciliation or arbitration through the auspices of the National
Joint Council. We believe this project is a real example of true
modernisation in the Fire and Rescue Service showing that, where
employee and employer representatives enter into negotiation as
equals, in a spirit of trust and co-operation, mutual benefits
can be realised.
48. This new duty system has been designed
taking account of fire fighter safety, in that we have made a
decision to maintain a crewing level on fire appliances of five
fire-fighters on the first appliance and four on the second.
Suggested way forward
49. We have found that this system is more
efficient, effective and economic when compared to the previous
national duty system. We would encourage all Fire and Rescue Services
to adopt a more flexible approach to duty systems and that Central
Government via the various agencies identify and communicate good
practice.
Working with other Emergency Services
The issue
50. The Fire and Rescue Services National
Framework encourages Fire & Rescue Services to work together
with other emergency services. One of the main areas of collaboration
is using co-responder schemes and in some areas of the country
this is being introduced. As a large Metropolitan Fire and Rescue
Service with one of the best performing Ambulance trusts in the
country we see many benefits from working together for the improvement
of service delivery of the public.
What are we doing about the issue
51. We have recently signed a Memorandum
of Understanding (MoU) with the Greater Manchester Ambulance Service
(GMAS). The Greater Manchester Fire and Rescue Authority believes
that this is a significant step forward in the provision of services
to the public by two blue light emergency services who have much
in common. The MoU goes much further than "co-responding"
which is being developed in some areas of the country.
52. The Memorandum of Understanding (MoU)
is intended to provide a framework to guide future working between
the Service and GMAS and forms a mutual statement of intent towards
partnership working.
53. The primary objective of the MoU is
to ensure that the Service and GMAS work efficiently and effectively
together, share best practice and where appropriate resources
and facilities, in order to deliver improvements in the community's
public health and safety.
54. The MoU relates to areas of potential
interface between the Service and GMAS in performing their respective
functions, it does not place additional responsibility on either
party, nor does it imply any transfer of responsibility from one
to the other or sharing of statutory obligations.
55. The MoU also recognises the opportunity
for providing enhanced value for money by:
(a) Researching the feasibility of the common
use of resources and estates;
(b) Seeking opportunities to share education
and training facilities and processes, identify common approaches
to training and development and the sharing of expertise;
(c) Seeking opportunities to share support
service functions such as maintenance of vehicles, procurement,
ICT, HR Support and occupational health and physiotherapy services;
(d) Sharing information by working together
on best practice in areas such as risk management, risk identification,
management development and health and safety management;
(e) Sharing expertise and best practice on
the modernisation of workforces and working practices, with an
emphasis on improving working lives, and equality and diversity;
and
(f) Further enhancing the public safety of
the population of Greater Manchester, through effective emergency
planning and improved collaboration on major incidents and other
incidents such as RTCs.
56. There are no financial implications
at present. However, as specific projects are identified and realised
there is potential for significant financial savings and efficiencies
in the future.
57. GMFRA believes this specific partnership
will realise significant advantage for both GMFRS and GMAS in
the future which in turn will benefit our public and believe it
important to bring to the attention of the Select Committee.
Suggested way forward
58. There are a number of possibilities
in how emergency services can work together and the approach adopted
by GMF&RS is one such way. We would hope that were co-responding
is not a viable option that other ways are considered and communicated
around the country.
Flexible Resource Deployment
The issue
59. A common factor for all Fire & Rescue
Services is that the number of incidents that occur changes throughout
the day and at night time there are generally less incidents than
during the day. Resources are currently allocated based on the
busiest time of the day matched to the risk and to meet response
times. This is not the most efficient use of resources and there
is no flexibility in the current arrangements. We are also determined
that any changes we make to emergency cover are based on low risk,
incremental evidence based judgements.
What are we doing about the issue
60. The introduction of flexible operational
resource deployment into Greater Manchester Fire and Rescue Service
means that each night, four appliances will be stood down and
not crewed.
61. In order to balance out emergency cover,
the same four appliances will not be stood down every night. The
aim is to spread emergency cover as evenly as possible across
the County proportionate to risk to life and property whilst recognising
workloads of individual appliances. A software package (Phoenix)
has been produced for GMFRS by Active Software of Basingstoke.
It ranks appliances in order of value based on workload patterns
by time and by geographical location over the previous three year
time period.
62. We have determined which appliances
to stand down using three data base systems, namely our own Management
Information System; Phoenix and the Fire Service Emergency Cover
(FSEC) model supplied by the ODPM.
63. FSEC is a software package developed
for the Office of the Deputy Prime Minister. It evaluates resources
according to their effectiveness as defined by cost, prevention
of loss of life, and their contribution to the community. The
results from Phoenix were validated against the risk in FSEC and
there is a strong correlation which confirms the validity of the
flexible resource approach.
64. The introduction of this new approach
based on the introduction of the new software systems has helped
to improve our efficiency without compromising our ability to
achieve target attendance times.
Suggested way forward
65. We have found that our use of FSEC has
been instrumental in informing our Fire Safety Campaign planning
and identifying the appropriate allocation of resources particularly
front line appliances. We would encourage other brigades to use
the system we have developed whereby FSEC is used in association
with the recently developed Phoenix Software package, or similar.
Youth Engagement Initiatives
The issue
66. We have recognised for a number of years
the direct correlation between disengaged youths and anti-social
behaviour which impacts on the work of the fire service. Examples
of this are an increase in attacks on firefighters and in arson-related
incidents which places in an avoidable burden on our resources.
This burden is reflected in The ODPM's Strategy for Children and
Young People: 2006-10.
67. A significant area of the government's
Community Cohesion agenda is directed towards working with Children
and Young People. Involvement in this work is fully supported
by Greater Manchester Fire and Rescue Service. Although not directly
applicable to the Fire and Rescue Service, we feel that it is
part of our wider role of community involvement. The introduction
of The Children Act 2004 also presents significant opportunities
for GMFRS to become involved with other agencies in a more structured
way.
What are we doing about the issue
68. We have developed a strategy to elevate
this burden by implementing various programmes through establishing
partnerships. This work seeks to apply: a) early intervention
with youths who are starting out on the road to anti-social behaviour
and b) to connect with those young people who have an established
history of anti-social behaviour. By utilising the image of the
firefighter as a role model it is possible to access areas of
the community which other agencies aren't able to. These programmes
allow us to connect in a youth-friendly manner to get our message
across.
69. There are three main established programmes
within GMFRS which actively seek to engage young people, the Princes
Trust TEAM programme, Young Firefighters and FIREFLY. A number
of other local projects are also delivered linked to our IRMP.
70. The Prince's Trust scheme runs three
teams per year from six locations and has specific target groups
in the 16-25 age range. The scheme is primarily funded by the
Greater Manchester Learning and Skills Council and delivered by
dedicated full time uniformed and non-uniformed staff. Courses
run each weekday for 12 weeks, with a five day residential phase.
We would want to urge Government to ensure that, through the Learning
& Skills Councils, a sustainable funding strategy is in place
for this vital work.
71. The Young Firefighter initiative has
developed over a longer period and is delivered by volunteer firefighters
in four locations. It runs on one evening per week, with a one
week camp in summer and various weekend activities. The age range
is 11-16 and three schemes are funded by annual budget allocation,
whilst one is funded by a grant.
72. Firefly is a more recent development
aimed at addressing anti-social behaviour amongst young people
on the fringes of criminal activity, and in turn reducing hoax
calls and acts of hostility against firefighters. It is currently
run in the Oldham area in partnership with the youth offending
team but there is a demand for this to be extended into other
areas.
73. Firefly is delivered by one full time
community liaison officer, with the assistance of six volunteer
firefighters whilst each five day course is running, and has delivered
very positive outcomes in reducing hoax calls and re-offending
rates. Evidence provided by the youth offending team suggests
that over 70% of young people who have attended this programme
have not committed further offences.
74. National recognition has been received
by our Firefly Co-ordinator who has been presented with a national
award for Best Individual Contribution to Fire Safety for his
work running the Firefly Scheme and his work in Oldham. He has
worked on Firefly with youngsters from very difficult backgrounds
which has resulted in excellent results as outlined above.
Suggested way forward
75. We have developed our approach to engaging
with young people over a number of years and it is encouraging
to see that the Government have now introduced a national strategy
with the Strategy for Children and Young People 2006-10. We would
encourage all Fire and Rescue Services to adopt this guidance
as in our experience working with young people is one of the areas
that a Fire and Rescue Service can make a difference.
Attacks on Fire-Fighters
The issue
76. Attacks on fire fighters are increasing
in many areas and although not a new problem for Greater Manchester
or any other Brigade it is getting steadily worse. The figures
below are for GMFRS.
| 2002 | 156 attacks
|
| 2003 | 264 attacks |
| 2004 | 158 attacks |
| 2005 | 211 attacks (up to November)
|
What are we doing about the issue
| |
77. There is no doubt that there is a seasonal trend
with school holidays and the time around Bonfire Night seeing
a significant increase. November 2005 accounted for 48 of the
211 attacks.
78. The issue of attacks on firefighters is not just
about protecting fire-fighters and emergency workers, it is also
about tackling anti-social behaviour which is high on the Government's
agenda.
79. Feedback we have had so far from government ministers
is that sufficient protection is already provided by existing
legislation and that specific offences of assaults on public sector
workers are unnecessary. However, we believe that the problem
is far wider than physical assaults - appliances and equipment
have to be taken off the run because of deliberately inflicted
damage. New legislation is required to provide an effective deterrent
to the full range of nuisance, hindrance and intimidation that
fire and other emergency crews increasingly face.
80. A key area of inconsistency seems to be over what
constitutes an attack. It is not just about verbal or physical
abuse but about fire-fighters being hindered or obstructed from
doing their job. Examples of obstruction include razor blades
being placed on the underside of banisters so fire-fighters cut
themselves on the way up the stairs or youths setting off hydrants
and preventing fire-fighters from getting to them to use them
for operational incidents. There is often damage to equipment.
A recent incident involved a BMX bike being thrown at the front
of a fire engine. Damage to engines means that they may have to
be removed from service. This can affect fire cover and ultimately
could impact on community safety.
81. GMFRS have been at the forefront of developments
relating to attacks on fire-fighters with robust reporting procedures
and operational policies. Many other Fire and Rescue Services
have used Greater Manchester's policies as a model of best practice.
We have also invested significantly in modifying some of our equipment
to cope with the attacks. This has included fitting protective
glass on the windscreens, central locking for cabs and most recently
trialling CCTV on some appliances.
82. GMFRS fully recognise that this is not just about
fire-fighters, it is about all emergency workers. We fully support
the Proposed Emergency Workers Protection Bill put forward by
Alan Williams MP. This applies to a wide range of emergency workers
and is based on the recent legislation introduced in Scotland.
It also recognises the issue of hindering and obstructing not
only personnel but action against, "vehicle, apparatus, equipment
or other thing."
83. Recent incident in Rochdale on 31 August 2005. This
incident involved a settee on fire on the ground floor of an unoccupied
flat. The cause was malicious ignition. While at the incident
the crews came under attack from local youths hurling lumps of
concrete, one of which hit a fire-fighter on the side of his head
- luckily he was wearing a helmet - and knocked his visor down.
He managed to catch a second lump of concrete which was also aimed
at his head. However, a further disturbing incident occurred when
the Firefighters were inside the building in full BA, the hoses
kept cutting out leaving them without water. On investigation
it was noted that one of the youths had entered the fire engine
cab and turned off the water supply. Had this been inside a blazing
building it potentially could have had very serious consequences
for the firefighters.
84. We also continue to engage with those in our communities
who we feel may be behind the attacks. We have an excellent success
rate with a number of initiatives such as Firefly and the Prince's
Trust to address this type of anti-social behaviour but sadly
funding is limited for these and we are unable to reach everyone.
The CFO has established a national group to consider the issue
and make recommendations to address the problem on a national
basis.
85. Greater Manchester Fire and Rescue Service has had
considerable regional media interest in the issue and as a result
is currently running a campaign with the Manchester evening News
calling for specific legislation to be introduced to protect all
Emergency Service workers.
Suggested way forward
86. This is a national problem that links with social
issues and we believe that the time is right to introduce legislation
similar to that in Scotland that makes it a specific offence to
hinder, interfere or obstruct frontline emergency service workers.
Regional Controls and Firelink
The issue
87. GMFRS see that this is a regional issue and as a
committed member of the North West Fire and Rescue Management
Board fully endorse their response.
What are we doing about the issue
88. The North West Fire and Rescue Management Board acknowledge
that there is a clear requirement within the National Framework
to deliver the transition to Regional Control Centres. There are
genuine concerns over several aspects of the project detailed
below. The Authority believes that improving clarity in these
areas would improve the potential to work with Government to secure
the promised improvements to service delivery. These areas are:
Costs
89. There is a clear need to demonstrate that this project
represents value for money for people in the North West. The business
case has so far been based nationally, with indications that the
larger existing control centres predominating in the North West
will be advantaged less. The North West Fire and Rescue Management
Board would benefit from having clarity and reassurance on when
it will be provided with evidence that efficiency savings will
offset the resources and time committed to the project since inception.
There are indications that additional costs incurred will only
be covered by "new burdens" once they have been offset
against any benefits that may be accrued. If this were to be the
case surely these benefits cannot then be used to justify the
viability of the Project.
Human Resources
90. The North West Fire and Rescue Management Board believes
in a high level of commitment to all the constituent Authorities
staff. The National Project has been slow to determine several
key issues to allow progress with the Human Resources issues essential
to support our staff through this difficult transition. The Board
urges early progress on selection, terms and conditions, pay,
relocation expenses and redundancy. It is recognised that many
of these issues are linked to the new governance model for regional
control centres. However management and staff are becoming increasingly
frustrated at the lack of progress in these areas.
Timescales/Quality Control
91. There have been several examples of slippage in the
project so far. It is difficult to reassure the public and staff
that the proposed improvements to efficiency and effectiveness
will be delivered when delays has been a feature of the FiReControl
Project to date. The project would benefit from being more explicit
on the guaranteed improvements that will be delivered and guarantees
that these will not be sacrificed if the project faces financial
pressures as it approaches completion. The project would also
benefit for ensuring that robust commissioning and testing arrangements
for the technical solutions are put in place given the crucial
role of mobilising in service delivery.
Firelink
92. Some North West Fire and Rescue Authorities are becoming
increasingly concerned with the proposed interim solution regarding
feasibility and possible loss of functionality during the period
involved. As this could be mission critical particularly during
a terrorist attack this requires urgent attention. 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.
Suggested way forward
93. We support the CFOA position in respect of this and
urge that detailed and timely information is made widely available
in respect of the outline business case, governance and funding
arrangements of FiReControl and Firelink.
Water Rescue
The Issue
94. The Health and Safety Executive issued an improvement
notice on GMFRS following a tragic incident in Ramsbottom which
resulted in the loss of two lives, (one being a Firefighter attempting
the rescue). This improvement notice had implications nationally
throughout the Fire Service citing a lack of policy and procedures
at a water incident. Five years after the incident the Health
and Safety Executive pursued a prosecution of this Authority in
the Crown Court which resulted in a not guilty verdict.
What are we doing about the issue
95. GMFRS formulated a Water Policy Group which produced
a policy, procedures and recommendations all of which were accepted
as best practice nationally. Some of which are included below:
96. Every operational personnel have been trained in
water awareness, which included practical sessions in a swimming
pool. New equipment was purchased for every frontline pumping
appliance. New equipment and in shore rescue boats purchased for
the Water Incident Units.
97. GMFRS is seen a one of the national leaders on the
subject of inshore water incidents, we have personnel who form
part of national committees and are presently training the Police
in the subject of Water Safety.
Suggested way forward
98. In our view this should be recognised as a national
problem and we would encourage the Government to ensure that there
is sufficient funding for Fire & Rescue Services to provide
the right equipment, training and service provision to safely
and effectively deal with incidents that involve rescues from
water.
CONCLUSION
99. In conclusion we feel that our submission includes
a range of evidence in support of the modernisation agenda within
GMFRS we can demonstrate progress in many areas.
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