Memorandum from the Department for Communities
and Local Government (FIRE 26)
The Communities and Local Government Select
Committee has launched a brief inquiry into the FiReControl project
and has called for written evidence by 8 January 2010. This
memorandum is the department's response to that call.
THE CHALLENGE
1. The challenges we face as a country are
changing: we have seen the impacts of climate change floods in
Northumberland, Gloucestershire and most recently in Cumbria;
the scope of large industrial incidents like the Buncefield oil
depot fire; and the developing nature of the terrorist threat,
as we saw in the 2005 London bombings. These are real threats
to our country's safety and resilience.
2. The Fire and Rescue Service has done
a professional and courageous job in responding to all of these
events and many more. But these challenges have also highlighted
the dangers they face and how they have succeeded despite shortcomings
in some systems and equipment. We are committed to equipping the
Fire and Rescue Service with the tools they need to meet these
challenges and to protect the public.
THE GOVERNMENT'S
RESPONSE
3. We set out to understand the nature of
these challenges and the possible responses. It was clear that
the issues we faced as a country were no respecter of traditional
boundaries and our ability to deal with these challenges would
require a greater level of co-operation and interoperability between
the Fire and Rescue Services than ever before.
4. The Government commissioned an independent
analysis of the options by Mott MacDonald in 2000, which was updated
in 2003. It became clear through this that the current communications
systems in the FRS could not provide a basic level of resilience
across the country. Even now, there are 46 independent, standalone
control rooms which operate with varying technologies and work
differently.
5. From the evidence in the 2000 and
2003 Mott MacDonald reports, The Future of Fire and Rescue
Service Control Rooms in England and Wales, and through consultation
with the Fire and Rescue Service, we decided to put in place for
the first time a national network to handle emergency calls and
mobilise resources across England.
6. We chose a network of nine Regional Control
Centres which would be able to back each other up whenever emergency
call volumes peaked, providing greater national, regional and
local resilience. These centres would be able to direct resources
from more than one FRS to a particular incident at times of great
stress.
7. This decision to go ahead was firmly
rooted in our objective to modernise the Fire and Rescue Service,
informed by the conclusions of the Bain Review in 2002. The project
itself is an integral part of the Fire and Resilience Programme
which is a £1 billionn Government investment in the
FRSs.
8. Alongside FiReControl, the other two
projects which make up the programme are: Firelink—a common
interoperable radio communications system; and New Dimension,
which has put in place a wide range of new capabilities including
equipment and training to deal with major incidents, such as high
volume pumps for flooding. Taken together these projects provide
a powerful platform for the future of the Fire and Rescue Service.
9. We committed to deliver this programme
in the 2003 White Paper, Our Fire and Rescue Service White
Paper, and the FiReControl project tasked with setting up
the regional control centre network began in March 2004. Our commitment
to deliver has been reinforced through consecutive Fire and Rescue
Service National Frameworks. The current version covers 2008-11.
10. As a department we have a clear Departmental
Strategic Objective which sets out to ensure "safer communities
by providing the framework for the Fire and Rescue Service and
other agencies to prevent and respond to emergencies (DSO6)".
Delivering FiReControl, and the rest of the Fire and Resilience
Programme, is a core priority for the department.
THE CASE
FOR FIRECONTROL
11. The benefits of the FiReControl project
which will be delivered by implementing the Regional Control Centre
network can be broken down into three categories: increased resilience,
greater Fire and Rescue Service capability, and improved firefighter
safety. These are explored below.
Increased Resilience
12. The major benefit of the FiReControl
project is the resilient network which it will deliver. Every
Regional Control Centre will be able to back up any other at busy
times, and ensure a better service to the public. The networked
technology will ensure that control staff in any of the nine Regional
Control Centres will be able to answer calls from anywhere in
the country and be able to mobilise the appropriate resources
in the quickest and most effective way.
13. Currently, this is not possible. Today
the Fire and Rescue Service has 46 stand-alone control rooms
which take 999 calls. There is a large disparity in the technology
they use and they cannot access a common communication system
to provide backup for each other in the event of a large scale
incident. In recent emergencies, such as severe flooding and large-scale
urban fires, independent control rooms have been unable to cope
with the high volume of calls that they have received and calls
have been held in long queues and sometimes even lost. Neighbouring
control rooms have been able to take messages only.
14. The existing control room system does
not meet modern operational requirements. They are not purpose-built
and many would not be capable of responding sufficiently effectively
to a large scale incident, such as a natural disaster or terrorist
attack. The RCCs are purpose-built, modern facilities which are
securely designed to form part of the Critical National Infrastructure.
Each RCC has green credentials and provides a much improved working
environment for staff. Their locations were carefully chosen to
address staffing needs and take account of environmental risks
such as flooding. They are built to a highly resilient standard,
and each building can continue to operate in times of crisis,
such as in the event of a power loss.
15. The Chief Fire and Rescue Advisor Sir
Ken Knight's review of the response to flooding in 2007, Facing
the Challenge (2008) stated that his review findings "underpin
the rationale for the FiReControl project and conclude that a
number of difficulties experienced in the existing disparate fire
control arrangements will be overcome through the proposed regional
control centre network."
Greater Fire and Rescue Service Capabilities
16. The FiReControl project is introducing
a wide range of tools to raise the capability of all Fire and
Rescue Services up to the standard of the best. These tools include
the integration of new risk management tools which will allow
for more accurate and effective mobilisation of resources. Currently,
FRSs cannot deploy specialist equipment or resources efficiently
across boundaries or over large geographical areas. With FiReControl,
local Integrated Risk Management Plans will be coordinated to
mobilise an efficient response.
17. When a member of the public makes a
call, the caller's location (from a mobile or a landline) will
be identified automatically, helping the Fire and Rescue Service
respond to those who cannot communicate or are uncertain of their
surroundings.
18. If a call cannot be handled by the "home"
RCC, whatever the reason, it will automatically be transferred
to an available operator in another region. Under the FiReControl
project, the introduction of common call handling and mobilisation
processes, technology and training, will then allow for calls
to be consistently managed.
Improved Frontline Firefighter Safety
19. The new system will also deliver significant
safety benefits to the public and to firefighters.
20. The rollout of Mobile Data Terminals
(MDTs) to all FRSs across the country will provide risk information
to firefighters, including information on buildings and details
of known risks and hazards, guidance on the safe handling of chemicals
and details of motor vehicle design in road traffic accidents,
and the location of the nearest hydrants and water supplies. This
will also enable every FRS to meet the improvement notice issued
by Health and Safety Executive. The Firelink project is installing
the hardware for the MDTs, and FiReControl will provide the software.
21. We are also introducing a new communications
system based on data, rather than voice. This system will facilitate
quicker, more effective information flow at incidents—for
example on the status of incidents. The data system will be a
significant benefit to firefighters, and will be accessible through
the MDTs.
22. Each MDT will be equipped with a Global
Positioning System transmitter which will show the exact location
of each fire appliance. This will enable control staff working
with networked technology to identify the available appropriate
Fire and Rescue Service resources with the shortest journey time
for an incident anywhere in England. This is called the Automatic
Vehicle Location System, and it will also provide information
on the quickest route to the incident.
Who will see these benefits?
23. The FiReControl project is delivering
benefits to everyone in England. It represents £420 million
of investment in the Fire and Rescue Service and will provide:
A better service to the public
— When a member of the public makes a call,
the caller's location (from a mobile or landline) will be identified
automatically.
— The control centre computer systems will
help the RCC staff to locate and mobilise the appropriate resources
instantly.
— And, because there is a network to absorb
increased demand, during a large scale emergency, more calls will
be able to be answered more quickly.
Safer frontline firefighters
— Firefighters will be able to access consistent
and timely information through on-board computers in their cabs.
— This will provide firefighters with satellite
navigation technology and access to vital information like the
location of the nearest hydrants and water supplies.
Better technology for Control Centre Operators
— All control operators across England
will have modern equipment, use the same technology and be able
to work together across the network to back each other up at busy
times.
— The new systems will provide control
room operators with technology to help them do their job more
effectively, including information on the nearest and most appropriate
resources for any incident.
— They will be able to contribute their
expertise to help in large-scale incidents in other regions.
PROJECT COMPONENTS
24. FiReControl is a complex and ambitious
project, and implementation has not been straightforward. The
delivery environment is by its nature diverse, with considerable
work required by 45 FRSs, the main contractor EADS Defence
& Security (and their sub-contractors), local authority controlled
companies who will run the RCCs, and the national project team.
25. The FiReControl project has been running
since 2004. Since that time, we have engaged very closely with
the Fire and Rescue Service to understand their needs and to establish
their requirements for the Regional Control Centre network.
26. The FiReControl project can be broken
down into three main components: the IT solution and delivery
of equipment; Regional Control Centre buildings; and business
change. We have made considerable progress against each of these.
Development of the IT solution and Delivery of
Equipment
27. EADS was awarded the contract to develop,
deploy and maintain the IT solution in March 2007 following
a competitive procurement process. EADS is contracted to deliver
the resilient IT system that links the nine regional control centres
to all fire stations across England, and their appliances and
vehicles, and which enables the transfer of data between them.
They are also contracted to maintain and enhance the system following
development, until 2015. There is also an option to extend this
until 2018.
28. We have started rolling out mobilising
equipment into local fire stations. At the start of January 2010,
over 125 stations are using the FiReControl interface equipment
to communicate between their control room and their fire stations.
Indeed, we have had a specific programme of work to roll out some
of this equipment in advance of the main roll out to assist FRSs
whose current equipment had become obsolete or hard to maintain.
When the network goes live all FRSs will use this equipment to
communicate with the Regional Control Centres.
29. The development of the initial software
for mobile data terminals (in-cab computers) is complete and the
roll-out of these terminals to all FRSs taking this software is
now well underway. Firelink has supplied the hardware for the
MDTs.
30. Many of the "ways of working"
operational policies and procedures have been drawn up in partnership
with the FRS, EADS, and their sub-contractors. We have engaged
with all nine regions to develop the list of mobilising attributes
that each FRS will use to define their specific attendances. This
work is being driven forward through further and continuing engagement
with the FRS community.
Construction of Regional Control Centre Buildings
31. The FiReControl network will be operated
out of nine Regional Control Centre Buildings. The specifications
for these purpose-built buildings have had to be drawn up, detailed
work on location selections, and making preparations for facilities
management services have been a key component in the project.
32. We have made good progress on the buildings.
Eight of the nine Regional Control Centres have been built and
the ninth (London) is on track for completion next month, February
2010.
33. To date, EADS has kitted out three of
the RCCs (South West, East Midlands, and North East) with furniture,
Audio Visual and IT equipment. In a fourth region, the West Midlands,
the fit-out is substantially complete.
Implementing Business Change
34. FiReControl is a large business change
project. For example, there are new bodies set up to run the RCCs
which will have the opportunity to develop the culture in the
RCC and training will be in place to prepare control room operators
for the move into the Regional Control Centres. These are essential
to the successful delivery of the FiReControl project.
35. The move to a national network requires
a standard approach to a number of operational policies and procedures
to be developed and adopted across the country—replacing
up to 46 different approaches. Developing and agreeing these
new "ways of working" is a significant undertaking and
these operating protocols are being been drawn up in partnership
with FRSs, RCCs, EADS, and their sub-contractors. At the time
of writing, almost all of the key principles have been drafted
and reviewed by the FRS. Significant work is being put into developing
the detail which sits behind these principles.
36. The Fire and Rescue Authorities in every
region outside London have come together to set up Local Authority
Controlled Companies which will run the Regional Control Centres
in the future, including employing the RCC staff. These LACCs
are maturing and making important decisions about the future of
their service.
37. We are working closely with the FRSs
to enable them to build their "pre-determined attendance"
protocols which will, in turn, enable them to deliver their Integrated
Risk Management Plans through the Regional Control Centre network.
THE WAY
FORWARD
38. Our first priority over the coming months
is the development of the integrated IT solution, being delivered
by our contractors EADS. As the Committee is aware, the development
of the FiReControl solution has been slower than expected. For
their part, EADS Defence & Security has acknowledged that
their quality assurance has not been as good as we and FRSs are
entitled to expect.
39. EADS has reorganised its senior management
and designated this as one of their top three priority projects
in Europe. They have given us their assurance at the very highest
level that we will now see the standard of performance, delivery
and quality on this project that we would expect from such a major
global company in this field.
40. Following a key design review in March
2009, the design approach was revised to involve both the department
and the end users in the elaboration of the requirements and the
solution. A series of Solution Establishment Workshops were scheduled
and these are attended by members of the national project team,
FRS secondees, representatives from the Chief Fire Officers' Association,
EADS technical designers and suppliers.
41. A recent significant development is
that in December 2009 EADS changed a key sub-contractor from
Ericsson to Intergraph to deliver the core mobilising system.
EADS had concerns about the slow progress in developing the mobilising
system. Therefore, in November 2008, they started to explore the
viability of alternative mobilising systems.
42. In December 2009, Ministers agreed that
EADS could change sub-contractor to Intergraph, and its Intergraph
Computer Aided Despatch system product (I/CAD). Prior to that,
a full impact assessment was undertaken and significant work was
carried out by the project team and FRS representatives to review
the functionality offered by the new supplier.
43. In contractual terms, we have demanded,
and received, greater visibility of deliverables and more interim/shorter
milestones from EADS. We will continue to take a close "hands
on" management and assurance role and be vigilant for signs
of slippage or loss of quality in outputs.
44. Equally, as a department we have raised
our game to ensure that we have the right level of professional
capacity on the national project team in areas like contract management,
governance and operational processes. We welcome the Committee
recognising this at the session on the department's annual report
last autumn.
45. We are regularly monitored through OGC
Healthchecks of the project. This October they commented positively
on many aspects the project and we are continuing to work with
them to ensure successful delivery. We have also sought independent
advice on the way forward for the project, and we have been assured
that through our strengthened relationship with EADS and their
new sub-contractor, we are on track for the development and integration
of the full FiReControl solution.
46. Our team of FRS secondees, around a
third of the national FiReControl team, will continue to work
at EADS' offices in Newport to provide assurance on the design,
development and test of the IT solution as it progresses. At the
same time, the department and EADS have jointly commissioned an
independent study aimed at strengthening our relationship, funded
by EADS.
47. We believe that we will know the full
impact of this approach, and be able to assess EADS renewed delivery
approach, in Spring 2010.
PROJECT IMPLEMENTATION
COSTS AND
SCHEDULE
48. Since the initiation of the FiReControl
Project in 2004 the first indicative cost figure given to
Parliament for project implementation was £120 million.
This did not include costs of meeting local and regional implementation
activity, nor did it include the costs for installing equipment
in every single fire station in England. At this stage the expectation
was that the IT system would be delivered by commercial off-the
shelf solutions and the integration requirements had not been
fully defined. In 2005 the Outline Business Case was published
which indicated an expected completion date of January 2009.
49. As we developed the FRSs' requirements
we were then able to assess the funding they would need for a
range of local and regional implementation activity. We also developed
a firmer idea of the costs of the Regional Control Centre building
leases and the costs of equipment to be installed in every fire
station in England to support improved mobilisation.
50. In 2007, the first comprehensive assessment
of the total cost to deliver the project was announced in the
first version of the Full Business Case 1.0. We were in
a position to do this at this time as all the major contracts
had been signed, including the £200 million contract
with EADS to develop, deploy and maintain the IT system. The project
cost at this time was estimated at £340 million based
on a schedule for the first Regional Control Centres going live
in October 2009, with the whole network up-and-running by September
2011. Under these assumptions, the business case forecast national
level savings of 28% compared with the costs of running the current
control rooms.
51. In 2008, we announced that the total
implementation cost would be £380m. The increase in project
costs followed engagement with stakeholders to further develop
understanding of the local and regional costs of implementation
including the revision of estimates on training and redundancy
costs in particular.
52. We also initiated an independent review
of the current control room costs during 2007-08 which established
that the running costs were lower than previously estimated. As
a result of that review the annual savings which were reported
at 28% in 2007 were reduced to 11% in the 2008 Business
Case.
53. In the final version of the Full Business
Case, published in May 2009, the annual national savings once
the network goes live are currently estimated to be £6 million
(9%), as set out in the FiReControl Full Business Case 1.1,
published in May 2009.
54. The figure of £1.4 billion
which is often cited as project cost is in fact the total cost
of providing control room services over the 16 year period
2004-05 through to 2020-21 (the life of the Business
Case). It includes the running costs under current arrangements,
the project implementation costs for FiReControl, and the running
costs for the new RCC network.
55. We have three fundamental funding principles
which we have stuck to throughout the life of the project. Firstly,
the department will meet all the costs involved in developing
the system and for the FRS' transition to the network. This commitment
is being met.
56. Secondly, no FRS will be left out of
pocket by the move to the RCC network. To this end, we have committed
to meet the net additional costs falling to Fire and Rescue Authorities
following their move to the RCC network ie those costs over and
above their current costs of providing the control room function.
This is a total estimated cost of £8.2 million per annum
and there are 24 Fire and Rescue Authorities eligible for
funding under New Burdens principles, which will be reviewed after
three years.
57. Thirdly, where FRAs are forecast to
make a saving they will be able to keep these and reinvest them
in frontline services. This applies to 21 Fire and Rescue
Authorities which are estimated to realise savings which total
£3.2 million per annum.
58. The project timetable was extended by
nine months in November 2008, aiming for the first RCCs to be
up-and-running in Summer 2010. The Fire Minister's statement to
Parliament explained that, following a thorough review of all
aspects of the FiReControl project, a number of difficulties with
the ICT and other dimensions of the project were identified.
59. In July 2009, we announced a 10-month
delay to the project due to technical problems with developing
the IT system in a way which will meet all our and the FRS requirements.
60. We now expect the first Fire and Rescue
Services to cut over to the Regional Control Centres in spring
2011 with the last switch over by the end of 2012. As a result
of this delay, the forecast costs of delivering the project rose
from £380 million to £420 million—this
is the cost of keeping the national, regional and local FiReControl
project implementation teams going for longer, as well as the
RCC accommodation.
61. At that stage, a deal in principle was
reached on a royalty agreement which would offset this increase.
We believe it is the best approach in order to continue to develop
the network, so the country can reap the resilience benefits,
while enabling the taxpayer to recoup the costs of the delay.
The original contract costs to the department have not increased.
We provided the Committee with a more detailed note on this issue
in November 2009.
CONCLUSION
62. FiReControl is a large and ambitious
project, with benefits which are well worth realising—greater
resilience in the event of a crisis, improved FRS capability for
day-to-day operations and safer frontline firefighters. The public
expects an effective and efficient service when they call "999"
and delivering the FiReControl project will enable the Fire and
Rescue Services to deliver this as well as make the right response
to incidents of all sizes.
63. Implementation of the FiReControl solution
has been slower than we hoped, and initially planned. We have
thoroughly reviewed our approach and progress, informed by independent
advice, and taken tough decisions to ensure we are best placed
to make progress. We are committed to delivering FiReControl and
the substantial benefits it will deliver for national resilience,
for public and firefighter safety and for improved capability
in England's Fire and Rescue Services.
January 2010
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