Hampshire Fire and Rescue Authority

Human Resources Committee Item 12

30th April 2009

HFRS Engagement and Participation Strategy

Report of the Chief Officer

Contact: Shanti Waas - Equality and Diversity Advisor Tel: 02380 625402

1

Summary

1.1

This paper outlines the key elements of HFRS's Engagement and Participation Strategy. It considers how Service Delivery activities can be improved through the meaningful involvement of Hampshire's diverse communities by moving away from just informing to empowering its communities to influence and where possible being a part of the decision making process. The paper refers to the Audit Commission's recommended community engagement success factors for developing a 7 step engagement processⁱ

1.2

Our Strategy provides a model, called the Community Engagement and Participation Spectrum, which defines the Service's increasing commitment to provide appropriate involvement for its communities. This is particularly relevant for those vulnerable to fire and other hazards.

1.3

Finally, this report provides an overview of the new External Equality and Diversity Consultative and Scrutiny Group (EDCS) and the network of Volunteer Community Advisors (VCAs) which act as further means of support to the engagement and participation process. An Engagement Strategy Implementation Plan will help ensure these new ways of working are given suitable profile and provide support to staff to help them understand and embed their in the practice.

2

Recommendation(s)

2.1

That the Committee endorse the Engagement and Participation Strategy noting the pro-active role of members.

2.2

That the Committee note the Engagement and Participation Implementation Plan

2.3

That the Committee note the formation of the new External Equality and Diversity Consultative and Scrutiny Group

2.4

That the Committee note the current network of Volunteer Community Advisors

3

Introduction and Background

3.1

As part of the Service's preparation for achieving level 3 of the Equality Standard for Local Government (ESLG), a review of the service's existing methods for community engagement was carried out. The review whilst recognising areas good practice also identified a number of areas requiring urgent action. Significantly, the absence of a Service wide engagement and participation strategy could be limiting the service's ability to engage effectively with its community. The review findings were subsequently confirmed by an external auditor who was commissioned by the South East Fire Improvement Partnership (SEFIP) to help assess and improve the equality position of the Fire Services in the South East Region measured against the Equality Standard for Local Government (ESLG).

3.2

Scrutiny of the existing engagement methods showed that they largely consisted of `information giving' and `consulting'. Those stakeholders who were interviewed by the external auditor commented that they felt that they were invited to consultation events to endorse actions or a policy `already decided upon by the service'. Some participants also felt that the subject of the consultation was often beyond their understanding and more could have been done by the service to explain the purpose behind it, including highlighting key points in documents they were asked about.

3.2.1

Another issue that surfaced was that concerning the participation of people coming under the equality strands of race, gender, disability, sexual orientation, religion or belief age and transgender and other vulnerable groups in the community. Whilst there was some participation from some groups, this was neither consistent nor universal across all areas.

3.2.2

Other points raised within the review included the need to explain to participants how their contribution was to be used, providing them with feedback on the results of the consultation and whether their input ultimately resulted in changes to policies, service provision or decisions.

3.3

In considering these issues, it became apparent that the existing engagement processes fell short of the standard required for meeting the current legal duties as well as undermining the Service's ability to move from ESLG Level 3 to Levels 4 and then 5. The Service further recognised that prior to the development of an engagement strategy, it needed to review the composition of the existing External Equality and Diversity Advisory and Consultative Group against all the equality strands and other vulnerable groups in the community. The service saw the existence of a `representative' external advisory and scrutiny group being pivotal to the effectiveness of the engagement and participation strategy. Success would require their support, participation and scrutiny of engagement activities.

3.3.1

Following this evaluation the Service responded by developing an engagement and participation strategy which is consistent with legislation, the corporate aims detailed within the Service Plan and the Service's values. It takes into account key policies and the People Impact Assessment (PIA) process and provide further support to the Service's response to the new performance framework.

3.3.2

Additionally, to provide an external focus and support to the community engagement process, the Service has established a new expanded External Equality and Diversity Consultative and Scrutiny Group in addition to a network of Volunteer Community Advisors.

4

Enabling the involvement and participation of all members of the community

4.1

In developing the Engagement and Participation Strategy, the Service was mindful of the strategic aim of moving from just consulting with stakeholders to genuine engagement and participation in a transparent way. This meant a shift from the perception of a more traditional `we know best' thinking that can be associated with specialist organisations.

4.2

The Audit Commission's recommended community engagement success factors formed the basis for the process for community engagement. These are central to the strategy. These factors are:-

· Commitment to user focus and citizen engagement

· Understanding your communities

· Clarity of purpose

· Communicating in appropriate ways

· Delivering change and improved outcomes

These are reflected in the definition of engagement and participation adopted in the strategy as "the process of involving people, either as individuals or as a community, in shaping policies, actions and decisions that affect them".

4.3

In order to give a perspective to what `involving people' might look like, the strategy has outlined a community engagement continuum, which illustrates the different levels of engagement. They are:

· Informing

· Consultation

· Deciding together

· Acting together

· Supporting local initiatives

A visual demonstration of these levels of engagement are provided in the strategyⁱⁱin the form of a Community Engagement Spectrum.

4.4

To ensure that the engagement methods set out in the Spectrum are easily understood and implemented, the Strategy has set out a 7 step model with explanatory notes. The strategy requires all engagement activities to follow the 7 step model.

4.5

The Engagement and Participation Strategy Implementation Planⁱⁱⁱprovides the vehicle to launch the Strategy. It requires a multi-disciplinary team who will provide awareness training and support for Service Staff. It is hoped to include EDCS representatives in awareness training events wherever possible.

5

External focus, support and scrutiny for community engagement activities

5.1

External input into the Service's policy development, planning, performance monitoring and engagement activities with service users, partners and other stakeholders was always a high priority for HFRS. However, as revealed in last years equality audit, the Service was short of having the appropriate structures and pathways to enable meaningful input from different sectors of the community.

5.2

Two initiatives were taken to address the identified gaps within the Service's current structure. These were the formation of an independent and representative External Equality and Diversity Consultative and Scrutiny Group (EDCS) and the development of a network of Volunteer Community Advisors (VCAs). The EDCS was officially set up in June 2008 and has so far met four times. The development of the VCA network commenced in October 2008. Since then, 5 VCA's have started supporting the work of the Service and there are plans to bring on 7 more across Hampshire in the next 12 months.

5.3

EDCS profile

5.3.1

The EDCS is an independent body with its own constitution and terms of reference. It was established to work with the Service as an equal partner in helping to mainstream equalities through offering advice, participating in policy development and planning, monitoring the Service's performance around equality, assisting in and scrutinising impact assessments and assisting and participating in community engagement activities.

5.3.2

The current EDCS membership consists of:-

20 members representing the following equality strands:

The current Acting Chair of the group is Amanda Hames, Hampshire Local Involvement Network (LINk). Once a full complement of members is established an Annual General Meeting will be held where the Chair, Vice Chair and Secretary will be formally voted in.

Race

Gender

Disability

Transgender

Age

Religion or belief

Sexual orientation Drug and Alcohol Addiction

Gypsies and Travellers

Homelessness

New communities

Champion and 2 Deputies

Champion and 2 Deputies

Champion and 2 Deputies

Champion and 2 Deputies

Champion and 2 Deputies

Champion and 2 Deputies

Awaiting nominations

Champion and 1 Deputy

Champion and 1 Deputy

Champion and 1 Deputy

Awaiting nominations

5.3.3

In addition there are 10 Associate members whose role is to provide support and assistance to the formal EDCS including representing the interests of groups not listed above.

5.4

VCA profile

5.4.1

VCA's were sought to help the Service improve it's services to groups considered by the Service to be `at risk' or more vulnerable to fire and other hazards. They provide the Service with advice and other assistance including participating in engagement activities and recruitment drives.

5.4.2

In brief their duties include:-

· To facilitate improved access to groups and individuals within the Community

· To arrange meetings between Service and individuals/groups

· To help arrange home fire safety visits

· To provide advice, guidance and opinion to help the Service develop inclusive policies, procedures and systems that will support making life safer

· To facilitate Service access to local businesses

· To assist with interpreting and translations

5.4.3

The current profile of our VCA team is as follows:-

· 1 Nepalese VCA - based at Rushmoor Fire Station

· 1 Polish VCA - based at Basingstoke Fire Station

· 2 VCA's working with Drug and Alcohol addiction - based in Southampton - accessed through the Service's Equality and Diversity Advisor

· 1 VCA working with Homeless people - based at St. Mary's Fire Station

6

Contribution to Corporate Aims and Objectives

6.1

The Engagement and Participation Strategy and the External Equality and Diversity Advisory, Consultative and Scrutiny Group is contained within objective 02 of the Authority's Fire and Rescue Plan 2008-2011 "Mainstreaming equality and diversity", and also supports objectives 03 and 05.

6.2

The development of the network of Volunteer Community Advisors delivers objective 05 of the Authority's Fire and Rescue Plan 2008-2011 "Learning more about the Community". It also compliments objective 03 of the plan "Working with Volunteers"

7

Risk Analysis

7.1

The three initiatives meet the requirements under current equality legislation and are consistent with Service's corporate aims and objectives, key policies and the ESLG. Apart from the risk in not implementing the Engagement and Participation Strategy, there are no other risks associated with these initiatives.

8

Resource Implications

8.1

Human Resources

All work required to support these initiatives has been and is planned to be contained within existing resources.

8.2

Physical Resources

Only minimal additional physical resources have been required. These have been met through the use of existing resources and/or contained within allocated budgets as appropriate.

8.3

Information and Communications Technology Resources

Access to office space and IT systems has been provided for the Chair of the EDCS within the HQ environment. This has been done within existing budgetary constraints and to no detriment to existing staff. Indeed, the ability for the EDCS Chair to access staff directly has been a significant advantage.

8.4

Financial Implications (3 Year Financial Plan)

All activities have been and plan to be contained within current financial allocations.

9

People Impact Assessment

9.1

A People Impact Assessment (PIA) has been completed.

9.2

The PIA has identified that there is no information available on the following groups:

· Hampshire's Gay and Lesbian Community

· Mental Illness

· Homeless

· Drug and Alcohol addiction

9.3

The EDCS have highlighted these areas for future action and will work with the Service's Risk Intelligence Team to build data bases including carrying out research using the expertise within the EDCS membership

9.4

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

10

Consultation

10.1

The Engagement and Participation Strategy was circulated both to internal and external stakeholders through the EDCS. The formal consultation was completed in January 2009. Whilst a few minor recommendations for improvements were made, the overall feedback was very positive.

11

Conclusion

11.1

There is no doubt that there are strong community/customer links to a large proportion of the Service's business activities that support the vision of making the Hampshire community collectively safer. The quality, relevance and appropriateness of the delivery of community safety and business education services are dependent on how well the Service can communicate with and engage its diverse community.

11.2

The package of initiatives described in this paper demonstrates that the Service is putting community engagement into the heart of it's planning and decision making processes. This should help to ensure that the Service continues to meet its statutory duties, barriers to community participation are progressively overcome and an ever increasing number of people within the community have a means of influencing how services they receive from us are shaped and delivered.

Background Information (Section 100D of Local Government Act 1972)

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:

Audit Commission - User Focus and Citizen Engagement - 2003-2006

Engagement and Participation Strategy - December 2008

Engagement and Participation Strategy Implementation Plan - March 2009

Constitution for the EDCS Group - November 2008

Roles and Opportunities for Equality Champions - March 2009 - HFRS E&D Team

The New Performance Framework for Local Authorities and Local Authority Partnerships - October 2007

Note: The list excludes: (1) published works; and (2) documents that disclose exempt or confidential information defined in the Act.