Archived decisions

Hampshire Fire and Rescue Authority

Item 9

15 September 2004

The Fire and Rescue Service National Framework 2004/05

Report of the Chief Officer

Contact:

David Howells, Director of Corporate Services

Tel: 023 8064 4000 Ext 203

1

Summary

1.1

The National Framework sets out a shared strategy for Government and fire and rescue authorities to deliver their goals. It provides strategic direction from central government whilst emphasising that fire and rescue authorities should continue to make local decisions - through their Integrated Risk Management Plans (IRMP) - on how to achieve the ambitious targets that have been set. Expectations set out in the National Framework will inevitably be used to inform the measurement of performance and levels of improvement made by fire and rescue authorities when Comprehensive Performance Assessment (CPA) is applied to them from January 2005.

1.2

This report therefore alerts Members of the need to ensure that the Authority's own IRMP (and its other supporting corporate aims) should - wherever possible and practicable - address the key aims and expectations set out in the National Framework.

2

Contribution to corporate aims, objectives and key tasks

2.1

The National Framework has been, and will continue to be, fundamental to setting the strategic direction, corporate aims, and targets in the Authority's IRMP. See items on Corporate Plan in this agenda and the Authorities IRMP. The overriding aim of the National Framework is to create a fire and rescue service that saves more lives and reduces unnecessary injuries through a greater focus on more effective prevention and protection work. This was reinforced by the Government as part of this year's Spending Review when it announced a new Public Service Agreement (PSA) with a commitment to achieving long-term reductions in fire deaths and deliberate fires, including real progress in the most disadvantaged areas of the country.

2.2

The target is:

By 2010, reduce the number of accidental fire-related deaths in the home by 20% and the number of deliberate fires by 10%.

2.3

The PSA target covers one main and two sub-targets:

Main target: accidental fire related deaths in the home -

To reduce the number of accidental fire related deaths in the home by 20%, averaged over the eleven-year period to 31 March 2010, equivalent to 280 fire-related deaths per annum, compared with the average recorded in the five-year period to 31 March 1999 of 350 fire-related deaths.

Sub-target 1: floor target -

No local fire and rescue authority having a fatality rate, from accidental fires in the home, more than 1.25 times the national average by 2010.

Sub-target 2: deliberate fires -

To achieve a 10% reduction in deliberate fires by 31 March 2010 to 94,000 from the 2001/02 baseline of 104,500.

2.4

In addition, the National Framework confirms that all of the following, previously set, targets remain valid until they are either signed off as having been achieved or are superseded by equivalent new targets.

To increase the percentage of women amongst uniformed operational staff to 15% by 2009.

To increase the percentage of minority ethnic representation within the fire service to 7% by 2009.

To reduce sickness absence and sustain improvement thereafter, by 2005 to a level consistent with, or better than those presently achieved by the best quartile of employees - an average of 6.5 shifts for firefighters and 5.4 shifts for control staff.

To operate so that the levels of ill health retirement are reduced by 2005, and are consistent with, or better than the best quartile of 6.9 retirements per 1,000 employees for the Fire Service.

Improve delivery and value for money of local services by:

    · introducing comprehensive performance assessments and action plans, and securing a progressive improvement in authorities' scores;

    · overall annual improvements in cost effectiveness of 2% or more; and

    · assisting local government to achieve 100% capability in electronic delivery of priority services by 2005, in ways that customers will use.

2.5

Actions aimed at achieving these aims and targets are included in the Authority's IRMP and appropriate business plans which make up the Corporate Plan. Performance against specific targets will continue to be monitored and reported to the Performance Review Committee.

2.6

The Government has said the Framework will be reviewed annually with the 2005/06 National Framework due to be published in the autumn. As such the Authority will need to review its own strategic plans in the light of any significant changes in Central Government expectation.

3

The National Framework - chapter by chapter

3.1

Following a mostly positive response from consultees to the draft National Framework (published in December 2003), the revised document (available on the ODPMs website at: http://www.odpm.gov.uk/stellent/groups/odpm_fire/documents/page/odpm_fire_029700.pdf ) comprises nine chapters, and the key issues in each are set out below:

1

Fire prevention and risk management

Authorities must produce an IRMP on which they have fully consulted their local communities. These should take account of central government guidance and include action plans for more efficient working practices.

The new regional control centres will be capable of servicing fire and rescue authorities' different mobilising policies.

Programmes of community fire safety work should respond to the needs and risks identified in communities as set out in the IRMP. The programme should be delivered in partnership with other authorities and organisations wherever appropriate. Particular mention is made of the opportunity afforded by membership of Crime and Disorder Partnerships to develop actions aimed at reducing arson and hoax calls.

Anticipating the implementation of the Regulatory Reform Order, authorities must set out - within their IRMPs - their strategy for the enforcement of fire safety legislation and prioritise inspection programmes at places that pose a significant risk to life.

2

Working together: the regional approach

This chapter confirms the role and functions of the Regional Management Boards. Clear aims and objectives need to be set for the, now well established, six key workstreams. Members will recall from previous reports that a `lead authority' has been assigned to each functional area - with Hampshire leading on the significant topic of Human Resources.

Mention is made of the establishment of a regional network of nine Business Change Managers based in the (regional) Government Offices (of which eight have now been appointed). Their role is to provide information about modernisation of the fire and rescue service to key stakeholders, support the Regional Management Boards, and disseminate good practice.

The requirement for the phased transition from existing control rooms to new regional control centres (by the end of 2007) is confirmed. Of particular note is the establishment of a Finance Working Group tasked with making recommendations (in September 2004) on funding issues associated with the control project. The Government has pledged to fund additional expenditure if the aggregate `new burden' in any financial year exceeds £100,000.

Authorities are required to implement the national strategy for procurement (when it is published in the Autumn 2004) and the Regional Management Boards will be expected to play a significant role including `call-off' contract management.

3

Effective response

Little has changed in this chapter from the previous draft although more emphasis is placed on the need for collaboration, particularly with regard to Health and Safety management, specialist response training in Fire investigation and Incident Command. The advantages of a flexible response over previous prescription is encouraged both to improve service and reduce costs.

It is also made clear that in future contingency arrangements to respond to industrial action will fall more to Fire and Rescue Authorities than the military.

4

Resilience and New Dimension

Once the Civil Contingencies Bill is enacted, fire and rescue authorities will be under a duty to work in co-operation with other emergency services, local authorities and front line responders. There is requirement to participate in Regional Resilience Forums.

The `Firelink' (radio communications) project, the `FiReControl' (regional control centres) project, and the New Dimension project are expected to work co-operatively to improve the capacity of the fire and rescue service to prepare for and respond to catastrophic incidents.

5

Fire and rescue staff

(See comments below in item 6)

6

Workforce development

Chapters 5 and 6 cover the broad area of Human Resourcing and the fundamental changes heralded by the framework and legislative reform. As well as the emerging regional approach to equalities, recruitment promotion the framework continues to emphasise the importance of managing sickness and ill-health retirements in line with public sector targets. Scant mention is made of a proposed new pension scheme, which is due for consultation by the end of 2004.

Mention is made of the workforce development strategy (now out for consultation) which in simple terms seeks to embed the Integrated Personal Development System (IPDS) at the centre of workforce training in the Service. It also defines the role of the Fire Service College in providing the quality assurance for such training at national, regional and local levels.

7

Finance

There are clear warnings of the Government's intentions to `cap' those fire and rescue authorities deemed to be setting excessively high budgets and council tax levels.

The position regarding transitional funding remains unclear. Because of the delay in allocating the funds (which was dependent on the outcome of the Verification Study undertaken by the Audit Commission), there seems to be some acceptance by the ODPM that to recoup all or part of the funding less than twelve months after it had been allocated to fire and rescue authorities is unreasonable. More specific advice is awaited.

Detailed proposals for a central Government `top up' account aimed at countering the yearly volatility in pensions expenditure will be issued for consultation in early 2005.

8

Performance management

The planned introduction of CPA for fire and rescue authorities from 2005, including improvement planning, capacity building and `freedoms and flexibilities' are outlined.

Best Value is to remain an important tool for reviewing and managing performance against service objectives. Proposals for revision to the suite of Best Value Performance Indicators are out for consultation. Hampshire as part of Family Group 4 has played a significant role in their development.

Authorities should ensure that their plans for e-government contribute to both their key organisational objectives and those set out in the Government's White Paper Our Fire and Rescue Service, and the National Framework itself. The scope for Regional Management Boards to pool resources to deliver e-government initiatives is mentioned.

9

Research

This chapter continues to emphasise the need for a collaborative approach to research within the Fire Service both in terms of technical and managerial issues. Services are encouraged to work together rather than duplicate resources in this area.

4

Risk analysis

4.1

It will be clear from this report that the National Framework is critical to setting the strategic direction of the Authority's own policies, plans and targets. It will be used to inform the CPA process. It therefore follows that for the Authority to attain a favourable assessment and avoid public criticism it must be able to show that it has taken demonstrable action to respond positively to all the expectations of fire and rescue authorities set out in the Framework.

4.2

Failure to respond positively to, and make progress on, the Framework's targets and expectations might result in the Authority being unable to benefit from specific funding allocations (including Local Public Service Agreements involving `stretching' targets) for particular initiatives and the freedoms and flexibilities associated with obtaining a `good' score under CPA.

4.3

In order to ensure that the Authority can demonstrate that it has responded to all the key issues in the Framework a summary of all the required actions will be reviewed by the Corporate Management Team with comments/actions set against each. These will be regularly reviewed and/or incorporated in other action plans to ensure that progress is being made wherever possible.

5

Resource implications

5.1

Recommendations set out in this report will have implications on the workloads of the Service's senior managers and support staff. No additional resources are required at this stage, but work schedules and tasks will need to be re-prioritised in order to complete the thorough review of the Framework in good time so that any resulting actions can be incorporated when drafting next year's corporate plan and supporting business plans.

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

That the Authority notes the key points of the National Framework as summarized in this document and endorses the role of the Corporate Management Team (CMT) in monitoring progress against required actions.

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.

The National Framework Document

http://www.odpm.gov.uk/stellent/groups/odpm_fire/documents/page/odpm_fire_029700.pdf

NB The list excludes:

1 Published works

2 Documents that disclose exempt or confidential information as defined in the Act

File ref: Secretarial/WP/Word/Corporate/HFRA: HFRA 15 9 2004 National Framework DH/JMW/6/9/2004