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ITEM EX17

EXECUTIVE – 19 MARCH 2002

FIRE COVER PROVISION : HENLEY

Report by Chief Fire Officer

Introduction

  1. This report explains the background to provision of fire cover and recommends a change in the way that this is provided for in Henley and the immediate surrounding areas. This change is necessary because of the longstanding and anticipated continued problem in recruitment and retention of firefighters in Henley.

  2. The Fire Services Act 1947 details the statutory duties of Fire Authorities. These include securing and making efficient arrangements relating to firefighting, equipment, training, arrangements for dealing with calls, information required for firefighting purposes, water supplies and access, together with arrangements to mitigate damage to property and the giving of advice as regards fire prevention. Within this context, the Brigade is required to submit an annual return to the Department of Transport, Local Government and the Regions giving details of the current establishment.

  3. The provision of fire cover is based on Home Office guidelines dating from 1985. These relate the risk within a locality to the type and number of fire appliances required to respond to that risk, together with the appropriate number of firefighters. All of these elements need to be located in a position which will allow adequate response times to emergencies.

  4. Based on these Central Government requirements, fire cover to date in Henley is provided for by 2 fire appliances crewed by 20 part-time (retained) firefighters. These staff are resident near to the station and on being alerted to an emergency by Fire Control (by the use of personally issued pagers), firefighting crews respond to the station and then on to the incident.

  5. The categorisation of risk within Henley requires that in a minority of areas one fire appliance should be in attendance within 8-10 minutes (largely in the town centre) and that in the surrounding environs one appliance should be in attendance within 20 minutes. The minimum number of crew on each fire appliance is 4 personnel. This is necessary to ensure that a minimum of effective and safe firefighting activity can be undertaken by each crew. Crews of 3 are not allowed to proceed to most incidents because of Health and Safety factors, unless they are used in a supernumerary support capacity. It should be noted that similar to the majority of other fire brigades in the country, a minimum of 2 fire appliances are sent to all structure/building fires irrespective of their location because of health and safety considerations.

  6. In the event of insufficient crew being available or responding to the station, the next nearest fire station is alerted. This in effect means that either Watlington, Goring or an across the border appliance (ie. from either Royal Berkshire or Buckinghamshire) is mobilised. In addition to reducing fire cover from those respective areas, there is an additional response period as time has already been lost in establishing whether sufficient crews are available at Henley, together with the increased travel time from any of these neighbouring stations.

    7. Staff Establishment/Crewing Levels

  7. The establishment level of crewing should be 20 staff, each of whom is available 24 hours each day in terms of contractual availability. This allows for rotation of crews for time off duty whilst maintaining minimum crewing levels at all times. The actual current establishment level is 11 firefighters. Of these only one is available on a 24-hour contract with 5 personnel being available at night-time and weekends, 2 providing day cover availability to fit in with their primary employment. Historically, it has been difficult to maintain a full crewing complement at Henley. Recent records date from 1996 when there were a total of 12 firefighters available. Since that time there has been a peak in late 1999 when there were 18 firefighters.

  8. Activity levels in Henley in the recent past are shown below:

    1. 277 calls

    2. 362 calls

    3. 335 calls

  1. The lack of staff numbers places an almost intolerable burden on those who actually serve. It has proved impossible to provide a crew for the second fire appliance for a considerable period of time. In fact, the current crewing level is less than that recommended to sustain continuous availability for even one fire appliance. In spite of this, Henley firefighters continue to support their local community to an extremely high level. The impact on their personal and domestic lives is considerable. Whilst the retained service is only able to be as successful as it is in Oxfordshire due to the support of firefighters’ families, in Henley this is at a level which should not be expected.

  2. The consequences of the above are that the level of unavailability from the fire station is substantial. The details are:

    3. April 1997-March 1998 1587 hours not available

    April 1998-March 1999 4563 hours not available

    April 1999-March 2000 6018 hours not available

    April 2000-March 2001 4736 hours not available

  3. Concerted efforts have been made to recruit and retain firefighters in Henley, including the secondment of an officer for a two-month period to this issue. It is estimated that the total additional costs for this activity were in the region of £10,000. However, in addition to initial recruitment, retention is a key issue. Since 1996, 32 staff have left the station. Twenty four of these staff have subsequently been contacted to see if there is any commonality in their reason for doing so. The reasons for leaving were found to be diverse and therefore not controllable by the Brigade.

  4. A meeting was held with the Town Council in November 2001 to give details of the problems and challenges regarding fire cover in Henley. The local press were also invited to the meeting. Subsequently, articles appeared in the Henley Standard newspaper in consecutive weeks (with front page coverage). The Town Council were very supportive of both existing firefighters and of recruitment efforts made to date. Following these initiatives, an additional number of prospective applicants have come forward.

    5. Options for Future Fire Cover

  5. The preferred option is to recruit and sustain adequate numbers of staff sufficient to crew both fire appliances at Henley. Whilst there are three prospective candidates in the pipeline, past evidence over a significant number of years show that the overall situation is unlikely to change appreciably. There is a substantial revenue implication in recruiting individuals who, for a variety of reasons, find themselves unable to commit to the minimum 2-year period which is necessary if a reasonable level of return on investment is to be achieved.

  6. The alternative option is to enter into an agreement under Section 12 of the Fire Services Act 1947 with one of the adjoining brigades (Royal Berkshire or Buckinghamshire) whereby they would contract to provide a second fire appliance to attend structure fires. Both brigades have been contacted with the details and both have indicated their ability and willingness to enter into such an agreement, with the basis for charging being by way of the Local Government Association scheme of standard costing.

  7. Provision in this way would fulfil the attendance times required by the Home Office. In addition, a modelling exercise has been carried out based on the likely central government methodology for achieving future fire cover based on life risk. Provision in the above fashion would also fulfil this prospective guidance.

  8. A change in the provision of fire cover in this manner would then allow for the second unavailable fire appliance currently stationed at Henley Fire Station to be removed from the fleet. In order to encourage future applicants, support existing firefighters and provide a degree of flexibility the aim would be to provide a low cost 4 x 4 vehicle which would be used on a supplementary basis for firefighting and which could be crewed by 2-4 staff. This facility would also be useful during periods of adverse weather conditions (ie. flooding) and during summer months for off-road support to neighbouring areas in the south of the county.

  9. Before final action can be taken, it will be necessary under Section 19 of the Fire Services Act 1947 to receive approval for the change of establishment. This would be progressed in conjunction with Her Majesty’s Fire Services Inspectorate. The Inspectorate will need to be convinced that alternative fire cover provision is sufficient to meet Home Office recommendations. It is anticipated that this will take some months to complete.

    10. Consultation

  10. Station personnel have been briefed on the situation and are generally supportive, accepting that the current situation is untenable.

  11. The Fire Brigades Union have been informed in outline of the intended change in approach. There will need to be further explanation and consultation on the issue.

    12. Financial Implications

  12. At present, the second fire appliance at Henley is a wasted asset. Removal of this would allow another station to receive this replacement fire appliance and for the eventual release of one fire appliance from the fleet. This would allow for a saving from the Vehicle Renewals Fund for reallocation as below. Dependent upon review, there would be a need to provide a smaller vehicle with 4 x 4 capability which it is anticipated would halve the outlay required for a frontline fire appliance.

  13. Additionally, the approved establishment of retained firefighters would be reduced, dependent upon review and supply of the smaller 4 x 4 vehicle. There is no baseline salary budget funding implication for this aspect as the brigade is not funded for full establishment but for actual retained firefighters in post. At present the unfulfilled expenditure for the non-availability for the second fire appliance at Henley is used to pay firefighters from neighbouring stations (mostly Watlington and Goring) who respond to these incidents. However, there will be a marginal increase in expenditure required to enter into a contract with one of the neighbouring brigades.

    14. 15. In order to drive down the fire risk in Henley it would also be proposed to post a junior officer to carry out his/her duty in the town area, giving advice to business and promoting education regarding fire risks. This individual would also be available to support the station managerially as well as being able to ride the fire appliance if need arose. It is anticipated that this could be achieved from existing staff numbers although it may be necessary to recognise the responsibility of the position via promotion in rank.

    RECOMMENDATION

  14. The Executive is RECOMMENDED to:

          1. agree that current fire cover provision in Henley is not sustainable, due to the lack of staff able to be recruited and retained;

          2. subject to (c) below authorise the Chief Fire Officer to:

            3. (i) apply to the Secretary of State for a reduction in the Oxfordshire Fire Service Establishment Scheme by one frontline pumping appliance, and a concurrent reduction in the Establishment Scheme number of retained firefighters required for Henley; and

            (ii) negotiate the terms of an agreement for the provision by either the Royal Berkshire or Buckinghamshire brigades of a second fire appliance to attend structure fires for Henley on the basis outlined in the report;

          3. authorise the Chief Fire Officer to take such action to implement measures to ensure effective and safe fire cover for Henley and the immediate surrounding areas as may appear to him, with the agreement of the Executive Member for Community Safety, to be appropriate in the light of the outcome of (b) above and further consultation with relevant staff and their union representatives.

JOHN PARRY
Chief Fire Officer

Background Papers: Nil

Contact Officer: John Parry, Chief Fire Officer Tel: (01865) 842999

February 2002

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