Archived decisions

Hampshire Fire and Rescue Authority Item 8

26 May 2004

HFRS Partnership Agreement with Hampshire County Council

Sprinkler System Installations and Risk Reduction Activities

Report of the Chief Fire Officer

Contact: Senior Divisional Officer Charlie House - Tel: 023 8062 6846

1

Introduction

1.1

Members will be aware of the Hampshire County Council (HCC) policy in relation to fire precautions in County Council buildings, in particular the policy for the installation of sprinkler systems to be applied to the built estate. The purpose of this report is to provide an update on the progress being made as a direct result of the partnership arrangements established between HCC and Hampshire Fire and Rescue Service (HFRS), to develop an integrated approach towards risk-based decisions for the implementation of structural fire precautions generally and sprinkler systems in particular.

2

Background

2.1

During the latter part of 2003, meetings were held between HCC Property, Business and Regulatory Services and HFRS to explore the possibilities of working together to develop a risk based, evidential approach to fire precautions within existing and new HCC building stock, driven by our risk based approach to fire safety and the recent HCC policy regarding the installation of sprinkler protection.

2.2

The timing of these meetings was fortuitous in terms of making progress in line with the modernisation agenda faced by HFRS and the outline commitment to risk reduction strategies being developed within the Authority's Integrated Risk Management Plan (IRMP). Moreover, members will also be aware of the need to move away from the prescriptive style of fire safety enforcement in readiness for the introduction of new fire safety legislation, in the form of a Regulatory Reform (Fire Safety) Order. This in itself has created an opportunity to consider a broader application of resources from within the Technical Fire Safety department (protection) and allow Inspecting Officers to adopt a fresh and innovative approach towards risk reduction activities.

2.3

This need to move away from an established prescriptive style of fire safety enforcement and a commitment within the IRMP to have a real impact in terms of quantifiable risk reduction has become the foundation of an agreed methodology for this alliance. In simple terms, focus is now on assessing risk, rather than the application of a one size fits all solution.

2.4

Consideration in terms of risk would need to include the following; enhanced structural precautions, age, structure and performance of the building, occupancy profile, location, evacuation strategies, heritage and community loss, all of which would combine to establish the most practical way forward in relation to sprinkler system installation and fire management strategies.

2.5

At the conclusion of these initial meetings it was agreed that HFRS would second an experienced Technical Fire Safety Officer to work from Three Minster's House, Winchester, to assist the County Council with its policy of installing sprinkler systems and to consider risk reduction in its widest context, based on an agreed risk management methodology. Following on in a new policy for HCC, one which focuses more on evidential risk, rather than a dilution of any previous commitment.

3

Initial Progress

3.1

In December 2003 an Officer was seconded for a period of four months to work with HCC Property, Business and Regulatory Services. Full costing associated with this arrangement being met by HCC.

3.2

Since that time, over forty building projects have been assessed with regard to the provision of sprinklers systems. Twenty three installations have been agreed across a range of premises such as, new nursing care homes, older persons homes (refurbishments), schools, and an activity centre. Additionally, but just as importantly, advice has been given regarding many other aspects of fire safety, ranging from the provision of benchmark standards, to basic guidance on fire hydrant maintenance.

3.2.1

Older Persons Homes

The focus on life protection by HCC has been on nursing care homes for older persons. The initial phase of the nursing care project has now begun, the new building extension at Ticehurst (Aldershot) being the first to start, with a likely completion date of the end January 2005. All the new buildings have been risk assessed for the provision of sprinkler protection, not only focussing on the areas to be covered by the sprinkler system, but also, the required water supplies. The same risk assessment process has been used for the refurbishment of the existing homes that link with these new buildings.

Meetings have now been held on how fire safety measures in seven of the homes due for refurbishment can be improved in the short term, with limited disruption for the clients being a consideration, but without compromise on safety.

The first home to be fitted with sprinklers will be Malmesbury Lawn (Havant), this is likely to be handed back by the contractors by the end of September this year. An early benefit from this new approach has been that the sprinkler system will now also cover the adjoining single storey day centre, a premises which in the past has suffered from vandalism.

To coincide with the commissioning of these premises, we intend to maximise the positive outcomes of this initiative. This will not only be an ideal opportunity to expand upon the success of our partnership, but will also enable a structured publicity and education campaign highlighting the benefits of pro-active risk reduction strategies aligned to IRMP. Potentially, this could also provide a very useful platform to advertise the changing role of the Service.

An exciting and unexpected benefit to flow from our association with HCC has been a comprehensive involvement in the production of a design model for automatic sprinkler protection for care homes. The aim being to provide an appropriate and consistent model of sprinkler system, as far as is possible, through the variety and style of homes provided in the county.

Gem (Fire Safety ) Consultants, on behalf of the County Council and in collaboration with HFRS, have produced a design model for `sprinkler protection in residential and nursing care homes'. This model is based on the risk assessment approach developed by HFRS. It is anticipated that the National Building Research Establishment will validate this model in the very near future. Additionally, plans are underway to produce a design model for schools and eventually, a model for `other' premises.

3.2.2

Schools

Twenty schools now have been risk assessed for sprinkler systems, the majority not requiring them due to the small size of the proposed building work. However, the robust construction of these particular premises and use of arson reduction measures as advised, will substantially contribute to reducing the risk of total building loss in the event of a fire.

Schools where sprinkler systems have been recommended are the John Hunt of Everest School (Basingstoke), East Hants Special School (Bordon), the replacement block for the Costello College (Basingstoke).

Assistance has been given on the priority of fire safety work in all HCC schools to overcome a number of problems due to the age and construction of the estate. With new buildings infilling on small school sites, fire service access is now becoming an issue. As such, we are advising on improvements regarding site access matters and fire safety aspects associated with site storage and waste location, particularly in relation to arson.

3.2.3

Other Premises

The same process has been used for a number of other buildings. These include libraries, museums, activity centres, an adult day centre and even a small bus station. Again, by adopting a risk assessment process, the broader aspects of risk have been addressed, an example would be the installation of better lighting and CCTV, identified as best practice under Crime and Disorder, as a deterrent against the plague of arson associated with certain areas across the County.

Encouragingly, based upon advice being given by HFRS, the new accommodation block at the Minstead Study Centre will now be fitted with a sprinkler system. This followed consideration of identified risk, including building form (timber), fire service attendance times, water supplies and potential business loss.

3.2.4

Other Fire Safety Work

This secondment and partnership approach has allowed key fire precautions work to progress. More generally within the partnership, work has developed on a variety of activities such as; HCC's risk assessment policy, fire safety training, benchmark standards and the revision of HCC's Fire Safety Manual & Record Book. The aim being that they should comply to HFRS audit standards, as per the protocols being developed within the partnership agreement.

4

Future Development

4.1

This brief résumé of results clearly highlights the benefits of this partnership regarding premises risk reduction and life protection. In order to consolidate this arrangement, it is intended to formalise a framework agreement to meet desired joint outcomes in terms of quantifiable risk reduction. This will not only enhance the commitment to sprinkler system installations by HCC, but will also provide HFRS with positive results in line with the requirements of IRMP and a template for other authorities to consider in the future.

4.2

Therefore, to continue this drive, agreement has been reached between HCC and HFRS to extend the secondment period of the Technical Fire Safety Officer currently working with HCC for an additional twelve months. Costing will again be met by HCC.

4.3

To make full use of this unique opportunity, we will need to explore joint working and partnership agreements with other associated agencies and expand upon potential opportunities as they unfold. Some progress in this area has already been achieved with Hampshire Social Services, working with HFRS and HCC to ensure risk assessments are made for each of the twenty-six registered homes for older persons under their control. This partnership is aimed at securing a consistent approach to structural improvements, risk assessment, training and fire safety management. In order to facilitate this particular initiative, two Technical Fire Safety Officers have been assigned to a programme of joint agency inspections, covering all of these care premises by the end of July 2004.

4.4

This initiative is particularly relevant in light of the recent tragic fire reported in similar care premises in Scotland, resulting in the loss of fourteen lives. Clearly, our example of collaborative working vindicates a proactive style of risk assessment as the way forward and as the basis of how we intend to deliver future protection strategies, identified within IRMP.

4.5

Although not directly associated with the HCC sprinkler partnership, influence from this style of initiative has resulted in a commitment from the Environmental Health Organisation in the Portsmouth area, to form a joint inspection programme with HFRS, for Houses of Multiple Occupancy.

4.6

Early results from this collaboration have been very positive. Following a series of risk assessments in these properties, several prohibition notices have been served. Occupants have been re-housed by Social Services whilst essential fire precautions have been installed. The result being, quantifiable risk reduction from a proactive methodology that falls outside of the prescriptive enforcement of legislation normally associated with Technical Fire Safety.

4.7

Encouragingly, advice given to Landlords by HFRS as part of this process has been an explanation of the potential benefits of residential forms of sprinkler protection and for consideration to be given regarding installation. Whilst it is too early to report any specific example of acceptance, we are extremely hopeful that there will shortly be a positive outcome to announce as a direct result of this risk reduction guidance.

5

Conclusion

The benefits emerging from this partnership agreement with HCC, in terms of quantifiable risk reduction, clearly highlight and support integration between agencies as a way forward for HFRS and aligns exactly with the intent of IRMP regarding Prevention, Protection and Intervention planning to `make Hampshire safer'.

6

European Convention on Human Rights and the Human Rights Act 1998

6.1

The proposals within this report are compatible with the provisions of the European Convention on Human Rights and the Human Rights Act 1998 and considered in the light of the Race Relations (Amendment) Act 2000.

Recommendations

1

The Authority notes the progress being made as a result of this partnership agreement with HCC Property, Business and Regulatory Services.

2

The Authority continues to endorse partnership working with other agencies, which focuses on activities to reduce risk, central to its Integrated Risk Management Plan.

Section 100D - Local Government Act 1972 - Background Papers

The following documents disclose the facts or matters on which this report, or an important part of it, is based and has been relied upon to a material extent in the preparation of the report.

None

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(1) Published works

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