Memorandum by the Association of Principal
Fire Officers (APFO) (FRS 44)
1. EXECUTIVE
SUMMARY
1.1.1 The Association of Principal Fire
Officers (APFO) is a body formally constituted to represent approximately
200 of the most senior managers in the Fire & Rescue Service,
specifically with regard to pay matters and conditions of service.
In our response to the new Inquiry into the Fire & Rescue
Service, APFO has confined its response to those matters most
pertinent to our Association and its Members.
1.1.2 Whilst remaining supportive of the
principal drive of the FiReControl Project to deliver a more efficient,
cost effective and resilient service, we are concerned that the
full business case and the evidence to support the financial consequences
of the Project is not available for scrutiny. It is the members
of our Association who are currently leading and managing the
FiReControl Project, still with many questions unanswered.
1.1.3 The eventual outcome may be one that
meets all the aims and aspirations of the project; conversely
a less successful outcome will fall upon our members to rectify
and make good. Future sustainability of the Fire and Rescue Service
is in many ways dependent upon successful delivery of the FiReControl
Project.
1.1.4 Our Association believes that FireLink
will significantly improve operational and incident ground communications
providing both the scope and opportunity to increase the effectiveness
of the Service. We believe now is an opportune time to revisit
the original specification for FireLink and examine the benefits
of including both hand held communication for the incident ground
and alerting systems for retained Fire Stations within the scope
of the Project.
1.1.5 Institutional reform is a priority
for the Service at all levels. We believe the current overly bureaucratic
processes do not aid effective industrial relations. APFO are
both keen and willing to engage in meaningful discussions with
the NJC and others to promote and foster a more conducive climate
for the future of industrial relations within the Fire & Rescue
Service.
1.1.6 Promoting diversity within the Fire
& Rescue Service is key to developing the Service both as
an employer of first choice and one that is seen by the public
as being at the heart of community safety. Notwithstanding all
our efforts to reduce deaths and serious injuries through fire
and other emergencies and promoting a community well-being agenda
embracing a diverse workforce, we must not lose sight of the fact
that the Fire & Rescue Service is critical to the future resilience
of this country.
1.1.7 Recent events including the terrorist
bombing of London, the floods in Carlisle and the major fire at
an oil refinery in Buncefield, Hertfordshire, provide unequivocal
evidence that the nation must have readily available, a competent,
well trained, appropriately equipped and effectively led Fire
& Rescue Service to respond to such emergencies. Our members
who are the senior leaders of the Fire & Rescue Service need
to be competent in all aspects of incident command in order to
effectively lead and manage a dynamic and complex operational
environment.
1.1.8 Whilst we fully recognise the benefits
of opening the Fire & Rescue Service to multi-tier entry,
we believe that ensuring the competence of our incident commanders
at all levels is crucial to maintaining our world class reputation
as an emergency response agency. Our ability and expertise in
all aspects of critical incident operations must be preserved.
2. TERMS OF
REFERENCE—QUESTION
1A
2.1 Regional Control Centres
2.1.1 The Association of Principal Fire
Officers (APFO) are not fully convinced that a robust business
case has been made to support the creation of nine Regional Control
Centres. Our members have concerns as to the potential revenue
costs of the FiReControl Project which may eventually fall upon
local tax payers and the consequential responsibility for that
will lie with the senior managers of the Service to drive through
the project and manage the eventual outcomes.
2.1.2 We have previously stated that we
would support a project that clearly delivers enhanced resilience,
greater interoperability between Fire & Rescue Services, enhanced
operational effectiveness including call handling, provides for
better operational working with other partners in particular Police
Forces and Ambulances Services, and delivers better value for
money for local taxpayers. APFO continue to lend our support to
a project that is designed to deliver improvements to a key aspect
of the Critical National Infrastructure.
2.1.3 We are not opposed in principle to
a reduction in the number of existing Fire Control Centres, rather
we wish to articulate a professional view that prior to embarking
upon a project of this magnitude, the full business case including
details of the revenue and capital costs and apportionment would
have been made available for all key stakeholders to consider
alongside the clearly stated service effectiveness outcomes.
2.1.4 Our Association has raised what we
believe to be quite legitimate questions regarding the potential
additional costs, which we consider may fall upon local Fire Authorities
as an outcome of the FiReControl Project, as well as seeking assurances
with regard to governance arrangements for the new Fire Control
Centres including legal accountabilities and responsibilities
with regard to the Fire & Rescue Services Act 2004. Whilst
we have received some general responses from the Office of the
Deputy Prime Minister (ODPM), we await clarification on the matters
we have raised in our earlier discussions with ODPM representatives.
2.1.5 APFO recognise and understand the
need for Government to have in place effective arrangements to
protect the security and infrastructure of the country, and can
understand there is merit within the case put forward for larger
Fire Control Centres. Indeed our members have already agreed to
support cross-border working and have given a commitment to respond
nationwide to maintain and ensure effective incident command arrangements.
2.1.6 However as a professional Association
we believe it is our responsibility to ask for reassurances with
regard to future costs and governance arrangements including legal
liability, as these are matters which fall within the corporate
accountability of our members.
3. TERMS OF
REFERENCE—QUESTION
1B
3.1 FireLink
3.1.1 APFO fully support the introduction
of FireLink to replace the existing main scheme radio, and recognise
the ODPMs resource and funding support in moving this project
forward. At the time of the initial specification for FireLink,
the issue of hand-held communication on the incident ground fell
outside the scope and remit of the project, as did the provision
of alerting for retained fire stations.
3.1.2 We believe that in light of the evolving
role of Fire Authorities in supporting the civil resilience agenda
as well as the increasing role the Service now plays in responding
to a wider range of civil emergencies, it would be prudent to
re-visit the initial specification with a view to including hand-held
incident ground communication facilities (Hand-held radios) and
to re-consider extending the scope of FireLink to including alerting
systems for retained fire stations.
4. TERMS OF
REFERENCE—QUESTIONS
2A
4.1 Fire Prevention
4.1.1 APFO would wish to lend their support
to the proposed introduction of the Regulatory Reform (Fire Safety)
Order, emphasising the need to ensure the considerable body of
knowledge and professional expertise on fire safety and fire engineering
matters currently residing in the Service, is not diluted. The
Fire and Rescue Service has for many years played a significant
role in fire safety in the built environment; our Association
believes this role should continue.
4.1.2 One further matter we would want to
comment on is that of automatic fire sprinkler systems. APFO members
continue to witness the damage caused to school buildings and
our young people's education, through malicious and deliberate
fire setting in schools. This Association lends our full support
to the installation of automatic sprinkler systems in all new
school buildings and major refurbishment schemes in school premises.
We also extend our support to the case for domestic sprinkler
systems in all new house building programmes. The opportunity
to leave a legacy for future generations, providing a home environment
protected from fire, should not be missed.
5. TERMS OF
REFERENCE—QUESTIONS
2B
5.1 Institutional Arrangements and Reform,
Including Transitional Arrangements and Finance
5.1.1 Almost every aspect of the Service
is now in the process of change with that change either refocusing
resources to better address risk in our communities, be that risk
from the Service's traditional focus/adversary of fire, or deal
with threats from transportation accidents, hazardous materials,
infrastructure failure, terrorist activity or climate change.
5.1.2 Many of the current elements of modernisation
assist Fire Authorities in using their resources more flexibly,
including taking a more entrepreneurial approach to preventing
emergencies and protecting people and property, as well as tailoring
our operational response more closely to evidence based demand.
5.1.3 Ironically, the one area which has
failed to respond to these changes, and yet in many ways was instrumental
in precipitating the industrial disputes of 2002-03, is the national
negotiating arrangements. Currently two NJCs exist. The first
and largest of these negotiating fora is euphemistically entitled
"NJC for firefighters", although it actually accommodates
all roles from firefighter to Area Manager.
5.1.4 A smaller NJC for Principal Fire Officers
operates for the most senior members of the Service, those who
lead industry and manage the considerable changes, with the vast
majority being members of APFO. The Association do not believe
the current arrangements serve our industry well. They are overly
bureaucratic, process driven and reinforce an industrial relations
culture of conflict rather than co-operation. Reliance on constitutional
arrangements rather than mediation and resolution has led to industrial
relations characterised by long periods of stalemate and then
dramatic change, often precipitated by damaging industrial action.
5.1.5 Whilst this has been the pattern for
the NJC for firefighters, that for Principal Fire Officers, although
somewhat less turbulent, is nonetheless equally moribund. Its
operation, structures and methods of working hark back to an era
long gone elsewhere in either the public or private sector, yet
still remain the principle structure for driving change at a national
level.
5.1.6 APFO members, both as employees and
as managers of the Service, have grown frustrated and increasingly
disillusioned with the present arrangements. In our view they
need wholesale reform, both to widen representation of employee
groups and more importantly, to introduce greater objectivity
centered upon a partnership approach to problem solving.
5.1.7 The NJC has been tasked with transforming
itself; this in our view has not come about. We do not believe
it is able to change itself as it is an entity which reinforces
the status quo, rather than facilitating transformation. It is
therefore time to overhaul the mechanism for national negotiation
and agreement and to promote more constructive labour relations
that are focussed less on process and more on clear outcomes.
6 TERMS OF
REFERENCE—QUESTIONS
2C
6.1 Promoting Diversity Within the Fire and
Rescue Service
6.1.1 The wholesale drive to modernise the
Fire and Rescue Service has the Association believes, created
a view amongst some key stakeholders that what went before had
not delivered what was expected of a public funded service, and
was therefore in need of complete reform and re-design. We believe
that it is important we remind ourselves that the Fire & Rescue
Service is not, and has never been, a failing Service. Room for
improvement yes, in need of some reform we agree, but far from
sub standard.
6.1.2 Notwithstanding the undoubted successes
of the Service, a belief appears to have emerged in some quarters
that those officers who presently lead the Service are not able
to take forward the progressive change agenda or are not suitably
"managerially" qualified and that "managers"
from outside must be brought in to inject expertise and bring
a fresh perspective to the Service. In some ways this approach
has been justified by suggesting that it brings diversity to the
Service.
6.1.3 APFO refute entirely the assertion
held by some influential parties that Principal Fire Officers
are not best placed to lead the Service. The majority of our members
hold academic qualifications at First and Masters Degree level
and have led the Service through extremely challenging and difficult
times, not only in the area of strategic organisational leadership,
but crucially in the absolutely vital role of command at operational
incidents.
6.1.4 As a reminder, the recently witnessed
major floods in Carlisle, terrorist bombs in London and oil terminal
fire in Hemel Hempstead demonstrate the fundamental importance
of the command and leadership role of Fire and Rescue Service
Officers, including Principal Fire Officers, at the scene of operational
incidents.
6.1.5 APFO has been quite clear that opening
up the Service to talent from outside is to be welcomed. We recognise
that whilst principal managers are performing well, they have
no monopoly on innovation and managerial expertise. However, those
entrants who join the Service need to be developed to take on
the significant operational command role the public quite rightly
expect from a primary emergency service. Operational command at
tactical and strategic level can be developed through training
and experience, but takes time and resources to guarantee high
performance.
6.1.6 Unfortunately the haste to repeal
the existing Appointment and Promotion Regulations that had once
ensured those placed in command roles had the requisite expertise,
has resulted in a lack of accredited training programmes being
made available for new talent. The development of accredited training
programmes is fundamental if the Service is to support and enable
those persons who enter the Service at a junior, middle or strategic
management level, to acquire the competence necessary to safely
and properly undertake the complete range of functions within
the role of a Fire and Rescue Service Manager, particularly where
it includes operational command.
6.1.7 Unfortunately there appears to be
a belief in some quarters that as operational command occupies
such a relatively small proportion of an officers' time, it is
unimportant. The fundamental flaw in this thinking was dramatically
exposed by the terrorist attacks of 7 July 2005. The simple fact
is that the Commissioners of both the London Fire Brigade and
the Metropolitan Police Service spend comparatively little time
undertaking operational command in their present roles. However,
when they do take command it is vital that they have the requisite
knowledge as well as being both competent and experienced to enable
them to effectively meet those enormous challenges.
6.1.8 There is now a real vulnerability,
most obviously at strategic level, but also throughout the whole
Service as new entrants are invited and encouraged to join, with
as yet no proper programmes in place to ensure that this new pool
of potential leaders are properly trained and developed to meet
the operational challenges they are to face.
6.1.9 The public, and other emergency service
colleagues, have a right to expect proper levels of experience
and competence throughout all roles within the Service and need
an assurance that those leading this key emergency service are
indeed capable of effectively undertaking their full range of
duties.
7. TERMS OF
REFERENCE—QUESTIONS
3
7.1 Joint Working Between the Fire and Rescue
Service and Other Emergency Services
7.1.1 A major thrust of reform in the Fire
and Rescue Service is close collaboration between Services and
other partner agencies. The motivation for such partnerships can
be varied, ranging from capitalising on individual strengths,
sharing fixed costs, greater economies of scale and better use
of resources.
7.1.2 Whilst central Government appears
to have abandoned its desire for regional Fire and Rescue Services,
it appears now to have moved to a more covert position whereby
it seeks to encourage voluntary collaboration and merger. The
Association recognises the potential benefits this may bring,
both in terms of some aspects of service delivery and easing pressures
on the public purse, but would argue that a "one size"
solution is not necessarily in the best interests of the Service
and more importantly nor is it in the best interests of service
delivery to the public.
7.1.3 We would also argue that whilst a
cursory examination of the evidence may suggest that larger Fire
Authorities appear to perform better, close scrutiny will reveal
that many smaller Fire Authorities are high performing, particularly
in indicators such as cost per head of population.
7.1.4 Inevitably, examples of closer collaboration
has led to a number of Services sharing officers to provide strategic
operational cover across the partner authority areas. A sensible
and pragmatic approach at a local level, this may be. Unfortunately
were this trend to continue unabated, the lack of a regional or
national perspective will create a considerable vulnerability
in resilience.
7.1.5 Individual authorities not surprisingly
are considering local needs when making their own arrangements,
but are not assessing the wider implications for national and
regional resourcing of major civil emergencies. With the response
to terrorist attacks and major climatic events being predicated
at least on a regional basis, the minimum number and availability
of principal officers across the UK needs to be properly assessed
and maintained. At present, this assessment is not being undertaken
and the lack of overview and co-ordination is allowing a vulnerability
to grow in terms of national resilience.
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