Memorandum submitted by Zurich Municipal
INTRODUCTION
1.1 Zurich Municipal welcomes the opportunity
to respond to the Education and Skills Committee Inquiry into
Sustainable Schools.
1.2 Zurich Municipal is the UK's leading
education insurer and risk management provider, which gives us
a unique insight into the sector, and the sustainability issues
it faces. We have extensive experience of some of the key risk-management
issues facing schools, particularly in relation to fire safety
and tackling arson, and publish annual figures tracking the number
of incidents across the country. We also hold a considerable central
database of more than 13,000 schools which looks at the risk ranking
of schools.
1.3 Zurich Municipal has a long history
of working with local and national education departments and schools
to try to combat arson. Recently we've worked with stakeholders
to develop a range of educational materials under the Arson
Combated Together umbrella, and published a free design guide
for schools with the aim of encouraging resilient building materials,
security features and the use of fire sprinkler systems.
1.4 We would welcome the opportunity to
share our understanding and give oral evidence to the Select Committee.
SUMMARY
2.1 The inquiry is wide-ranging and deals
with a number of areas which it would not be relevant for us to
comment on. However, we would like to draw the attention of the
Committee to the importance of appropriate design for schools
in order to ensure that they are truly "sustainable".
2.2 In summary, we believe that sustainable
construction needs to place much greater emphasis on the fire
risk associated with modern construction methods.
2.3 Additional funding and a firm commitment
must be introduced to ensure sprinkler provision in all new schools,
and wherever possible, in those undergoing major refurbishment.
2.4 The mandatory installation of sprinklers
in new and refurbished schools would massively reduce exposure
and vulnerability to fire, and therefore reduce the potential
of pupils studying, often for a number of years, in uninspiring
mobile units on play areas, whilst the school is being rebuilt.
2.5 Zurich Municipal are keen to offer best
practice to all those involved in the construction of new schools,
either through Building Schools for the Future or more conventional
procurement methods.
SUSTAINABILITY
3.1 Zurich Municipal welcomes the increasing
use of environmentally friendly design concepts, which often incorporate
the most innovative products and techniques. From what our customers
tell us, the use of such techniques can have a positive impact
on education provision, the community and, of course, the environment.
3.2 However, the good work done in this
regard also needs to consider the likely impact a fire would have
on such structures. It is commonly the case that many of the more
environmentally friendly products used have a limited performance
in the event of a fire. Lightweight structures with combustible
elements generally offer little resistance to the development
and spread of fire.
3.3 We believe that sustainable construction
needs to place much greater emphasis on the fire risk associated
with modern construction methods.
3.4 It is estimated that around 100,000
pupils are affected by large school fires as a result of the destruction
or damage of classrooms and school property. Our recently published
figures show that school fires cost an estimated £67 million
in 2005—a £16 million reduction from the previous year.
However, early indications show that this is not the start of
a downward trend. In March this year alone, school fires cost
an estimated £22 million, compared to a monthly average of
£5.5 million last year.
3.5 The limited performance of many of the
more environmentally friendly products is further compounded by
the fact that many school fires are started with malicious intent,
and in a number of cases it is evident that the perpetrators go
to extreme lengths to find ways of causing fires.
3.6 In terms of the design process, the
creation of inspirational, flexible and creative spaces is in
many cases limited due to the requirements that legislation imposes,
for example through Building Regulations for compartmentation
and travel distances to facilitate safe evacuation.
3.7 Design freedom and future flexibility
are important factors in the realisation of sustainable school
construction, in ensuring the buildings offer the optimum service
provision to the users.
3.8 This is something the provision of sprinklers
can afford, in allowing the necessary flexibility in design. The
issues around the degree of fire separation and compartmentation
become much less of a concern, and legislators and enforcing bodies
can play a key part in the sustainable approach. We believe that
sprinkler systems should be mandatory in all new schools, and
wherever possible, in those undergoing major refurbishment.
3.9 As far as can be ascertained, there
is no reference in the BSF guidance to resistance to fire in terms
of the sustainability of a project. This is considered a major
oversight and omission, which has a severe detrimental effect
on the true degree of sustainability being achieved on any project.
3.10 As an example of sustainable elements
within a new school, the provision of a sprinkler system can see
dramatic reductions in conventional fire precautions. For example,
the installation of sprinklers can result in reduced fire alarm
provision, lesser degrees of fire resistance to the structure,
fewer internal fire doors, larger fire compartments allowing greater
flexibility in layout, and potential for phased evacuation or
stay-put policies in terms of partial evacuation. These, plus
many other design freedoms, can assist in improving the overall
sustainability of the project.
3.11 It is currently understood that the
issue of sprinkler provision in new schools forming part of the
BSF programme is left to the LA to consider and pursue. Should
particular LAs choose to install sprinklers, specific funding
provision is not provided through the BSF process. In considering
the commitment to sustainability of these new schools, this indicates
a weak link in ensuring a sustainable future for the children,
communities and users of the schools.
3.12 Additional funding and a firm commitment
must be introduced to ensure sprinkler provision in all new schools,
and wherever possible, in those undergoing major refurbishment.
3.13 At Zurich Municipal we actively encourage
the installation of sprinklers in schools by rewarding those customers
who have installed sprinklers with lower premiums. The installation
of sprinklers can help schools meet sustainability objectives,
with sprinkler systems paying for themselves through reduced premiums
in eight to 15 years.
3.14 With exciting proposals utilising Modem
Methods of Construction becoming increasingly common, the insurance
industry is faced with greater challenges in considering, and
in many cases accepting, posed risks. Whilst the industry does
not wish to hinder such innovation in construction and sustainable
materials, acceptable terms need to be agreed appropriate to the
perceived risk of fire.
3.15 The potential survival and longevity
of a school following a fire, even one of relatively small magnitude,
is largely overlooked in terms of sustainable school design. With
three schools suffering from arson attacks every day, the likely
behaviour and resilience to fire offered by newly constructed
schools requires major consideration if schools are to achieve
truly "sustainable" status.
3.16 Whilst insurance companies carry an
obligation to fund the replacement schools following losses from
fires as part of their agreed terms, it remains public money that
funds such cover. The opinions that insurers will pay and the
school will be replaced is a direct conflict in terms of Best
Value, and contradicts any element of sustainable intention.
FUTURE LEARNING
NEEDS
4.1 Sustainable buildings are essential
elements in the delivery of initiatives such as Every Child
Matters, Extended Schools and Lifelong Learning. Lightweight,
modular, temporary classroom units brought on to a school site
following a fire offer little towards the delivery of such initiatives.
These "temporary classrooms" can offer little more than
a shelter from external elements and a degree of containment,
and in reality offer nothing in terms of inspirational learning
environments.
4.2 The mandatory installation of sprinklers
in new and refurbished schools would massively reduce exposure
and vulnerability to fire, and therefore reduce the number of
pupils studying, often for a number of years, in uninspiring mobile
units.
DELIVERY AND
FUNDING
5.1 From an insurance perspective, there
is greatly varying stakeholder involvement, although generally
it is somewhat limited. Given the procurement methodology of the
BSF programme, the process is generally not adaptable to "wider
stakeholder participation".
5.2 In contrast, the designs prior to the
preferred bidder stage are often only available to the designers,
LAs and the school's senior management team. Whilst we appreciate
that such commercial confidentiality needs to be observed, in
many cases by the time the designs are made available to wider
stakeholders they are beyond the point of change. This could lead
to the poor acceptance of risks by some stakeholders.
5.3 From a major insurer's perspective,
Zurich Municipal is keen to offer best practice to all those involved
in the construction of new schools, either through Building Schools
for the Future or more conventional procurement methods.
5.4 To assist those involved in such schemes,
a recently revised guide entitled "The design and protection
of new school buildings and sites" has been made freely
available on our website, offering guidance on key issues around
school design:
http://www.zurich.co.uk/NR/rdonlyres/11D1A19B-D88A-4569-B36A-DBCA90C27138/0/School_Design
_Guide_Nov05 SC.pdf
June 2006
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