ITEM CA6
CABINET – 17 MARCH 2009
FIRE AUTHORITY INTEGRATED RISK MANAGEMENT ACTION PLAN 2009-10
Report by the Director for Community Safety & Shared Services and Chief Fire Officer
Introduction
1. This report proposes a number of projects to be included within the Fire Authority’s Integrated Risk Management (IRMP) – Action Plan for the fiscal year 2009-10. The proposals summarise areas where the Service’s Senior Leadership Team believe service improvements may be achieved. To meet the requirements of the IRMP process each proposal must be supported by robust evidence, validating both their inclusion and their contribution to improved community safety and/or firefighter safety. Similarly, each proposal must be cognisant of the prevailing economic constraints.
2. These proposals if approved will be adopted in to the final version of the IRMP Action Plan 2009-10. The projects will be monitored through established performance management systems and reviewed every quarter through the project inplementation team (PIT). The progress of the projects will be reported every quarter to the Cabinet Member for Community Safety.
3. The Fire and Rescue Services Act 2004 received Royal assent on 22 July 2004. Part 3, Chapter 21 of this legislation requires the Secretary of State to prepare a Fire and Rescue National Framework, to which Fire Authorities must have regard when discharging their functions.
4. The Secretary of State initially published the latest Fire and Rescue National Framework in May 2008. The purpose of the Framework is to provide strategic direction from central government while ensuring that authorities continue to make local decisions. The Framework sets out the Government's objectives for the Fire and Rescue Service and what fire and rescue authorities should do to achieve these objectives.
5. The 2008-11 Fire and Rescue National Framework requires each Fire and Rescue Authority to produce a publicly available IRMP covering at least a three-year time span which:
· Is regularly reviewed and revised and reflects up to date risk information and evaluation of service delivery outcomes · Has regard to the risk analyses completed by Local and Regional Resilience Forums including those reported in external Community Risk Registers (CRRs) and internal risk registers, to ensure that civil and terrorist contingencies are captured in their IRMP · Reflects effective consultation during its development and at all review stages with representatives of all sections of the community and stakeholders · Demonstrates how prevention, protection and response activities will be best used to mitigate the impact of risk on communities in a cost effective way · Provides details of how Fire and Rescue Authorities deliver their objectives and meet the needs of communities through working with partners · Has undergone an effective equality impact assessment process
6. Fire and Rescue Authorities should review the effectiveness of ‘cross-border’ integration arrangements with neighbouring authorities and set these out appropriately in their IRMPs. Such reviews may best be carried out jointly and Regional Management Boards provide a potential forum for this to be taken forward.
7. Oxfordshire Fire and Rescue Authority published its strategic IRMP in April 2008, providing the strategic direction for the next three to five years. The strategic document is subjected to annual review and updated and amended as required. The current strategic IRMP requires no amendment for the fiscal year 2009-10 and will be refreshed as a new five year strategic document for the fiscal year 2013-14.
8. The projects that have been proposed for the action plan 2009-10 have been subjected to consultation for 12 weeks, starting from the 27th October 2008. During this period Oxfordshire Fire Authority have invited a number of organisations to comment on this years plan, such as neighboring Fire and Rescue Service, partner organisations such as Highways Agency, Environment to name but a few. The Fire Brigades Union and Oxfordshire Fire and Rescue Staff uniformed and non-uniformed were asked to contribute to the plan.
9. Also Oxfordshire Fire Authority commissioned “Alpha Research Ltd” to conduct a consultation event which represented the community of Oxfordshire. This provided feedback to the Fire Authority. (See attached Annex 1) (download as .doc file)
10. The Senior Management from Oxfordshire Fire and Rescue Service have responded to the comments made during the consultation period and the responses are contained within this report.
11. The following items summarise the projects for inclusion in the IRMP Action Plan for the fiscal year 2009-10, along with some extracts from the consultation and the management responses.
(a) Review Prevention and Risk Reduction
Objective
A review of our activities and partnership working especially in relation to Fire, Youth Diversionary work and Road Safety to ensure we are appropriately aligned with others in order to satisfy the approach for the Comprehensive Area Assessment process.
Key areas of development will include
· Extended partnership working to further target at-risk groups · Integrated work to enhance diversity to meet community needs · Customer- focussed activities and service delivery · Enhanced programmes to work with young people · Development of the Junior Citizen programme · Improved risk intelligence utilising Mosaic lifestyle and origins data · Promotion of OFRS 365 Alive 10 year vision
This project will be led by the Risk Reduction Manager.
Comments & Observation
There was some contention regarding the targeting of specific groups, such as younger drivers, or older people in the home. While most supported some focus on groups that were more at risk, others saw more scope for broader educational work targeting the wider public:
“It’s obviously better to prevent something than go there after the event.” “I think everything should be aimed at everyone not just a specific group.” “They haven’t got the money. You’ve got to put your money towards the best target groups that have come out in statistics. It’s the only way they can do it.” Participants suggested more workshops with target groups to instil safer behaviour
Management Response
The above comments are noted, Oxfordshire Fire and Rescue Services strategy is to continue to identify the at risk groups, to provide specific education, to change behaviour and improve individuals perception towards safety.
(b) A review of the implementation of the Fire Safety Order
Objective:
To review the organisational approach to the implementation, within Oxfordshire Fire and Rescue Service, of the Regulatory Reform (Fire Safety) Order 2005 (FSO). A major aim will be to determine if the correct balance has been maintained between the need to work with business and the need to protect employees and the general public. A further feature will be an analysis of the current system to ensure that those premises presenting the greater risk, receive a commensurately higher level of audit and inspection.
This project will be led by the Fire Protection Manager.
Comments & Observations
This was seen as a core part of the OFRS role and an important part of the service to get right. The need for review was clear to participants, because it was an important area and there seemed to be untapped potential to improve the behaviour of businesses in this area.
We are concerned that the emphasis on cost effectiveness may mean that the process is driven more by the economics of the service provision rather than the actual risk in the community? We note the positive objectives to support and educate, and to continue working in line with the enforcement concordat.
We note the review will seek to identify if the correct balance is achieved between the different forms of enforcement, however if you are focussing activity upon perceived at-risk groups as you desire to do at this time, surely the results will initially show a bias towards formal enforcement until the community has fully embraced the new fire safety approach particularly given the broader application of the Order?
We would like to see the issue of business continuity included here, as while it does not appear at first sight to impact on safety of employees directly, it does so as it demands exemplary fire safety management, prevention and protection arrangements are followed, which in turn must reduce likelihood of fire therefore improves safety of employees and responding firefighters alike. Sadly we believe the harsh reality and economics of fire are more likely to move hard pressed businesses to improve fire safety than safety of employees alone.
Management Response
Whilst it is true that we are required to ensure that the service we provided is cost effective, we are also under a requirement to ensure that all our activities in the field of enforcement are risk based. This means in practice we must determine the actual risks from fire in the community and satisfactorily respond appropriately to all those risks. Therefore, we believe that we are and will continue to respond to the actual fire risks in our community.
Our policy on the enforcement of the Regulatory Reform (Fire Safety) Order 2005 (FSO) is governed by the Regulators Compliance Code (incorporating the enforcement concordat). This covers the provision of assistance to the business community, by way of providing information and practical advice and only using formal enforcement measures in cases that cannot be resolved by working together to reach a mutually acceptable solution. Therefore it is anticipated that whilst we will be targeting at-risk groups, it is hoped that by mutual discussion and close cooperation, satisfactory improvements in the fire safety of these higher risk premises will be achieved without the need to resort to formal enforcement.
We strongly agree that business continuity is very important and is covered under providing fire safety advice to the business community in our Integrated Risk Management Plan 2008-13. In this year’s action plan 2009-10 the concentration is on reviewing our enforcement of the FSO at this particular period following its introduction, it is intended to give a prominent position in next year's action plan (2010/11) to furthering the importance of business continuity planning.
(c) Working with the requirements of the Local Resilience Forum
Objective:
The aim of the Thames Valley Local Resilience Forum (TVLRF) is to ensure there is an appropriate level of preparedness to enable an effective multi–agency response to any emergency. The TVLRF Strategic plan sets out how the TVLRF will work towards achieving this aim over the next three years. The delivery part of this plan outlines the specific actions that will be taken in to assist in this process. The 2009/10 delivery plan outlines the following specific actions:
· To support a robust governance structure enabling the TVLRF to be responsive, accountable and equipped to fulfil its responsibilities under the Civil Contingencies Act 2004 · To develop with the TVLRF a co-ordinated communications strategy which allows them to undertake its duties to warn and inform the public, to improve communication between responders and to manage the media. · To contribute to and maintain a Thames Valley wide risk register in order to raise awareness of emerging risks and ensure that the risk process informs future planning · To work with the TVLRF taking account of the national capabilities work streams and those local plans to provide a resilient framework for response. · Contributing to ensure that the TVLRF embeds multi-agency co-ordination, integration and training to achieve clear and consistent management of incidents · To contribute to improved resilience in the Thames Valley to flooding with regard to the recommendations proposed in the Pitt Review · Contribute to and ensure that multi-agency planning in respect of the 2012 Olympics and the impact on the Thames Valley is being progressed at an appropriate rate.
This project will be led by the Emergency Response Manager.
Comments & Observations
Q1. Is the Thames Valley Local Resilience Forum a forerunner to a Thames Valley fire service and regionalisation by the back door?
Q2. With regards the multi agency planning for the 2012 Olympics, the impact of the failure of the regional control centres to be delivered on time and also have no pre delivery inspection of these planned systems.
Participants did feel confident that OFRS and other agencies would be well prepared in the event of an emergency. They cited how well the flooding in the Oxfordshire area was handled in recent years, in particular the co-ordination of the response
The fact that participants have confidence in this aspect of the fire and rescue service inferred to them that it was less in need of a review than the first two projects.
Management Response
The TVLRF is set up inline with the Civil Contingencies Act 2004 and requires Category one responders to pre plan for major incidents; this project has nothing to do with regionalisation or the political make of areas.
In November 2008 Communities and Local Government announced a delay to the cut over to FiReControl. The key Regional Control in relation to the Olympics will be London, who are now programmed to cut over in February 2011, leaving 18 months before the games. It is understood that London accepts that this is sufficient time to undertake preplanning. Previously they have stated that if this window were not available they reserve the right to delay cut over until after the games.
Oxfordshire cuts over in October 2011 with the last service cutting over to the South East Regional Control Centre in Feb 2012. It is acknowledged that this is a very tight timetable. Should there be any further delays in delivery of the project, the proximity and extent of South East involvement in the Olympics will have to be considered. Meanwhile Oxfordshire and other Thames Valley Emergency Services will continue to prepare contingency plans.
OFRS will continue to develop and review emergency plans for the area, ensuring an appropriate response and the expectations of elected members public and sister agencies are met should a significant incident occur
(d) A review of the training requirements and operational needs associated with the retained duty staff (RDS).
Objective:
To review the training of our RDS, in order to determine if they are competent in role. Retained personnel form a significant part of our service and usually have a primary employment different to the Fire Service. The review will ensure that we analyse the areas of competence that they need in order to fulfil their role. In addition, we need to determine that the training needed can be delivered in a timely manner that complements their existing work commitments.
All firefighters have to be competent in role so as to reduce the risks to them associated with the occupation of a fire-fighter. There is additional risk to the public and the fire and rescue service which would be reduced through an effective review. Competency in role limits this risk exposure and likelihood.
The review will cover areas such as:
· Specific skill sets needed to ensure competence · Analysis to ensure competence gained is relevant to the role and tasks encountered · Consistency with national guidelines and, where appropriate, wholetime equivalents (wholetime are firefighters whose primary employment is as a firefighter) · Equality and dignity issues associated with the role · Review of current systems available to cover acquisition, demonstration of competence and maintenance · The use of development modules. Development modules ensure personnel who are promoted have their development needs designed, monitored and evaluated · Training needs are matched to the time available by the Retained Firefighters · Non-operational skills such as management and administration will also be considered · Assessment of risk reduction involvement where appropriate.
This review will result in a report and recommendations, the outcome of which will be to ensure that the expectations placed on our retained Firefighters to fulfil their operational role will be fit for purpose, fair and ensure we meet the needs of our community.
This project will be led by the Employee Development Manager.
Comments & Observations
This proposal, to review the training and competencies for Retained Duty Staff (RDS), was clearly understood by participants. Initial reaction was that this should be subject to continual review anyway and so perhaps is less in need of bespoke, ad hoc scrutiny. However, it was also clear that the effectiveness of RDS was vital to the success of OFRS and so anything which may be needed to optimise this should be welcomed.
“Surely this has been going on for years and it’s all finely tuned already.”
Management Response
Over the last 10 years Fire & Rescue expectations have changed and pressures of legislation have increased the training requirements for all firefighters. In particular RDS firefighters have limited time available to assimilate the wide range of skills a competent firefighter should possess; there is real concern that assimilation of all these skills can not be achieved in the limited time available. This review will look at both time available and necessary competencies, with a remit of identifying a way forward which provides competent firefighters and satisfactory outcomes at incidents.
(e) To achieve level 3 in the Local Government Standard for Equalities
Objective:
To review the position of Oxfordshire Fire and Rescue Service in regard to achieving Level 3 in the local government standard for equality and diversity. The review will ensure that we analyse the areas of current achievement and those areas that need action to ensure that we reach the standard. Action plans will be created to provide specific ownership of activities and a target date for achievement.
A gap analysis of the current position and what is required to achieve Level 3, including the aspects which require central OCC delivery, will be undertaken. As a result, action plans will be created that identify how Oxfordshire Fire and Rescue Service will progress this, with responsible persons and time frames identified. This will take account of ‘best practice’ in other fire and rescue services and external organisations.
This project will be led by the Employee Relations Manager.
Comments & Observations
“Get the best people for every job. That’s all I care about.” “If my house was on fire, all I’d care about is if they can deal with my fire.”
Management Response
This project is a requirement from CLG to achieve level 3 in local government standards of equality. Citizens of Oxfordshire can be assured that there will be no reduction of standards in the service or any diminution of service provided to the public. There are many benefits to the communities of Oxfordshire and for the Fire & Rescue in achieving level 3, not least, ensuring equality in delivering the service to all including the under represented groups.
(f) Review the joint working opportunities with the Emergency Planning Unit
Objective:
The increased sharing of resources and expertise will further improve partnership working and ensure a multi-agency approach to dealing with community risk.
The review will:
· identify common areas of work activity and seek ways of streamlining workloads · identify areas where resources can be shared to improve common outcomes · identify areas where expertise can be shared to improve common outcomes · identify areas of best practice and promote the use of these practices within each department.
This project will be led by the Emergency Response Manager.
Comments & Observations
Participants saw this as a core remit of OFRS, but knew very little about how well it is resourced at present. They did have faith that the systems were likely to be well set up in the event of a major emergency and so were not confident that there was any urgency for a review here.
Management Response
The bringing together of the F&R & EP came about in 2006. Comments are noted and acknowledge that this is a core activity; however this review is over due. The coming together of the Emergency Planning Unit and the F&R will provide seamless planning and resource efficiency, ultimately improving the service to the public.
(g) The creation of a succession planning strategy
Objective:
The creation of a succession planning strategy based upon the employee profile of three, five and ten years to ensure business continuity and maintenance of skills within the areas of protection, prevention and response.
With significant numbers of retirees within senior and middle management over the next five years and the turnover of existing staff, it is essential to put in place mechanisms to effectively support, develop and retain officers. It is essential at all levels that we provide them with the competencies required to continue to develop Oxfordshire Fire & Rescue Service and maintain its status as a high-performing, cost-effective service.
As part of this process we will ensure recognition of the fact that we need to effectively reflect the community we serve at all levels to ensure that future management understands the needs and expectations of all communities within Oxfordshire.
This project will be led by the Service Support Manager
Comments from feedback
Support for this project was mixed, with some remarking how fundamental it was to nurture staff and ensure that all levels of the service are fully populated by people with the requisite competencies. Others felt that this should happen naturally as gaps appear in the organisation and that reviews should be unnecessary.
Management Response
The comments are noted and acknowledge that nurturing individuals to ensure succession planning is a core activity. This review is driven by need, as over the next five years 40% of senior management will be retiring and unless specifically planned for, this will inevitably leave a void in respected to knowledge and experience.
(h) A review of the Incident Command Structure and Gold Command Resilience
Objective:
To review the Brigades capability to implement the Incident Command Structure (ICS) at operational incidents, in accordance with national best practise and guidance. To review the policy and procedures of the ICS and to ensure that incidents are adequately and safely resourced in order to bring a safe and timely conclusion to incidents.
The incident command system is fundamental to the safety of crews at operational incidents. It is imperative this area of our operational response is reviewed in order to ensure resourcing of key roles at incidents meets national best practise.
The review will also consider the sharing of ‘Gold’ level commanders across the Thames Valley area in order to provide resilience during protracted operations such as the flooding in 2007.
This project will be led by the Service Delivery Manager
Comments & Observations
This was immediately seen as a core priority for OFRS. Participants saw that it was fundamental to ensure that the right number and calibre of staff attend and co-ordinate each incident, and that no-one is given too much responsibility or that senior staff are mobilised when they need not be.
Management Response
The above is acknowledged and will be contained within the review.
12. This year’s action plan will not be printed and will be available for viewing via the internet. Printed copies can be requested through the fire service, and for different translations the facility has been arranged through the County Council translation and interpretation service.
Financial and Staff Implications
13. Staff implications – these will be contained within existing resources to implement these projects.
RECOMMENDATION
The Cabinet is RECOMMENDED, subject to any amendments, which the Cabinet may consider appropriate, to approve the proposed projects to be included in the IRMP Action Plan 2009-10.
JOHN PARRY Director for Community Safety & Shared Services and Chief Fire Officer
Attachments: Annex 1 – Alpha Research Consultation Paper Background papers: Oxfordshire Fire Authority integrated risk management plan 2008-13, The Fire and Rescue Service National Framework 2008-11, Fire and Rescue Service Equality and Diversity Strategy 2008-2018.
Contact Officer: Martin Crapper Tel: 01865 852171
February 2009
|