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Best Value Review – Gloucestershire Fire and Rescue Service Fire

Safety Group

Draft Terms of Reference

1) Introduction

The review will cover the fire safety statutory and non-statutory arrangements in
Gloucestershire, which covers both the Inspecting teams (FSIT) and the Community Fire
Safety team (CFS). It will cover the Acts and Regulations relating to fire safety where the Fire
Authority is the enforcing authority and the areas where the Fire Authority gives advice at the
request of another Authority (Appendix 1)

The Fire Authority is also required to give good will advice under section 1.1. (f) of the 1947
Fire Services Act.

1 (1) It shall be the duty of every fire authority in Great Britain to make provision for fire-
fighting purposes, and in particular every fire authority shall secure –
(f) efficient arrangements for the giving, when requested, of advice in respect of
buildings and other property in the area of the Fire Authority as to fire prevention,
restricting the spread of fire, and means of escape in case of fire.

The Fire Safety costs as part of the Service budget are currently;

ü Staff costs = £906,000

ü Other costs = £10,000
ü - Income = £18,000

Total costs = £898,000

There are a total of 34.4 staff working in connection with Fire Safety;

Staff Numbers FTE

Divisional Officer 1 1
Assistance Divisional Officers 4 4
Station Officers 6 6
Sub Officers 10 10
non uniformed inspecting Officers 6 4.9
non uniformed support staff 10 8.5

The Group is situated on the ground and first floor of the current head quarters building in
Keynsham Road Cheltenham which consists office accommodation. The fire safety group
managed the following workload over the last year 2001/2002 :-

Regulatory

Category Inspections
Premises required to have a Fire 3000
Certificate under the Fire Precautions Act
1971
Non-Certificated Workplaces 980

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Advisory

Category Inspections
Residential Premises 820
Non Residential Premises 2120
Petroleum and Explosive Installations 28
Community Fire Safety Activities 960
Fire Investigation 30

Current performance indicators relate to the Fire Safety Group and specific performance
indicators relating to fire safety inspections are: -

Indicator Description
BVPI number
BV143 Number of (i) deaths and (ii) injuries (excluding precautionary checks)
arising from accidental fires in dwellings per 100,000 population.

BV146 Number of calls to malicious false alarms per 1,000 population.

BV147 Average time taken by Fire Authority to issue fire safety certificates.

BV149 False alarms caused by automatic fire detection apparatus per 1,000 non-
domestic properties.

Indicator Description
HMI number
PI 12 Of Total Specialist Fire Safety Hours Available what % was spent on F S
Inspections by Premises Category.
PI 13 A verage time taken to conduct a. Full Inspections b. Re Inspections for
Cat A Premises
PI 14 of total F S Time spent what % is carried out by Ops Staff

PI 15 Average time Days between receipt of application and issue of notice

PI 16 Average time Days between Inspect confirming completion and Issue of

Certificate.

There has been no full review of the Fire Safety Group for a number of years, although there
has been changes to staffing levels with the introduction of new legislation and service
structural changes.

2) Summary Terms of Reference

The review will match the process and targets set out in the project timeline (appendix 2),
considering all identified material relevant to produce the appropriate arrangements to satisfy
the statutory and non-statutory fire safety requirements in Gloucestershire.

The review will cover the base line audit areas identified under section 3 ‘Areas that make up
this Service’, to ensure delivery of an economic, efficient and effective service. The base line
audit will be available within the reviews evidence file.

3) Key issues identified through the Base Line Audit

A Base Line Audit was undertaken to catalogue the current provision in relation to the fire
safety provision of the Service, identifying the cost and raising the initial challenge issues.
Additionally, it shows that the original purpose of the service was to support the service’s core
objective ‘Working together for a safer Gloucestershire’.

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The key issues identified from the Base line Audit were the need to review the structure as a
whole and to challenge the specific areas of:

Statutory
• Priority of workload
• Frequency of reinspections
• Priority of legislation

Non - Statutory
• Reduction of Service calls
• Community Fire Safety focus for Group
• Balance of pro active v’s reactive fire safety

4) Focus of the review

The review will consider the fire safety needs of Gloucestershire in its entirety and evaluate
it’s effectiveness in understanding and the supporting corporate objectives in providing a safer
community. It will undertake this in line with all published studies and recommendation and
any and all national fire service benchmarking (using its family group and national
comparitors). There will be a focus on the two key areas of:

• Fire Safety legislation, and

• Community Fire Safety provision

The focus of the review will be to prepare the Fire Safety Enforcement and Community Fire
Safety Teams, for the implementation of new Integrated Legislation on the Provision of Fire
Safety under the Regulatory Reform Order, which it is anticipated to come into force early in
2004.

Alternative types and forms of provision within other Fire Authorities and external
organisations will also be considered.

The ‘fit’ between current service delivery and the values, aims and principles at the heart of
the GCC Corporate Strategy will be considered, including review of fire safety related
elements of the Medium Term Financial Strategy.

5) Analysis of Current Service Delivery

The review will analyse the current service delivery, looking at the current budget, equipment,
staffing and way the service can be provided, matching it to levels of provision within the
mandatory and discretionary framework. Note will be taken of achievements and judgements
in connection with existing mechanisms such as Charter Mark and the Corporate
Performance Assessment process.

6) Framework for the Review – 4C’s

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With the review forming part of a wider County Council Best Value framework and selected by
the Service as a review for this year. It is necessary to ensure that the four broad elements of
challenging the present provision, consulting stakeholders, comparing the service and
considering the competition to that service are all undertaken.

Challenge

The correct levels of service provision will be challenged, using data from the family group
and national findings to match the provision of service and delivery, to ensure effective
operation.

Particular focus will be placed on how others configure the service and their relative success
in providing the Service and enhancing it’s ability to move forward. Mechanisms that provide
a clear understanding of overall aims, culture and immediate predicament will be examined.

The following questions will be posed as part of the challenge process

1. At what level is the service required?

2. What other ways could it be provided?
3. Could part of the service be dispensed with?
4. How do we meet the 20% requirement?

As well as the challenge panel and service management team it is intended to establish a
small group within the service, to challenge the work undertaken by the review group at key
stages.

E-Government and all methods of Service delivery and accessibility will be reviewed within
the structural review.

Consult

Consultation will focus on the external stakeholders, as the provision is directed at both
commercial and domestic areas, full consultation will be undertaken with all users. External
stakeholders are identified as;

• Owners / occupier’s of commercial premises

• Householders within Gloucestershire
• Local Authorities in Gloucestershire
• Commercial and social clubs and organisations
• Representative bodies

Questionnaires and semi structure interviews will be undertaken, with use made of any
secondary data available (previous studies or national responses). The review will also look
into stakeholder consultation and the best way to take this forward.

Compare

Comparison will be made using all performance indicators identified and with the Family
Group. Other comparisons will be made using comparative data identified in the following
areas;

ü Use of CACFOA benchmarking database

ü Other fire authorities
ü Other organisations within the same/similar environment

The aim will be to use information generated across fire authorities, with particular focus on
brigades of a similar size (family group); to make justifiable comparisons in all the areas
identified under key issues.

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Compete

Competition for provision of fire safety will look at other local authority and commercial service
providers identified.

Equality and sustainability issues will be addressed under all areas of the 4 C’s. In
particular we will be reviewing situations that may arise concerning language problems in
delivery of the safer communities’ message and developments in training, processes and
equipment available to assist this.

7) Methodology

Some preliminary fact-finding will take place through interviews within the service and
research of secondary data will be conducted focussing on other brigades performance, using
all and any information available. The primary data collection exercise will commence prior to
the start of the review in September 2002, but will be progressed through out the life of the
review.

An important part of the methodology will be the collation and retention of research material
and findings so that an audit trail exists for the review, and subsequent evaluation and
monitoring.

8) Management of the Review

The review will be undertaken by Mr Rob Hart of the Environment Department as lead officer,
with the aid of the fire safety management group and their teams.

It is anticipated that members of the Service management structure will participate with the
review and the challenge panel will continue their input and support throughout its duration.

In order to progress this review in a consistent way; the project timeline incorporates expected
milestones that will be used internally for monitoring.

The Fire Brigades Union will be invited to attend challenge panel meetings and act as an
active partner in undertaking the review. A copy of the terms of reference and all relevant
information will be forwarded to them.

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9) Plan of Action

Action Expected Output Responsibility Date

Complete Best Value Base Line Audit Identification of areas and Review Team April 2002
issues under review
Inform staff and other key stakeholders of the Progress review Geoff Sallis April 2002
review process

Approve terms of reference for Cabinet Agreement of terms of Challenge Panel October
reference 2002
Terms of reference to Cabinet Terms of reference Rob Hart October
2002
Terms of reference to Scrutiny (if required) Terms of reference Rob Hart November
2002
Gather relevant primary and secondary Progress review Review Team Autumn
information 2002

Undertake detailed Service evaluation

October
Compare 2002

Consult Progress review Review Team To

Compete December
2002
Challenge

Consider outline report with Service management Focus review Service January
Team Management 2003
Team
Present outline report to key stakeholders and Feedback on review Review Team February
Challenge Panel 2003

Prepare draft performance plan including key Final report in draft stage Review team March
indicators aimed at achieving continuous 2003
improvement, key actions, responsibilities and
timescales

Present draft report and performance plan to Feedback on report Rob Hart March
service management team 2003

Present draft report and performance plan to Report Accepted Rob Hart April 2003
challenge panel for objective challenge

Present draft report to Cabinet Report Accepted Rob Hart May 2003

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Appendix 1

Legislation Affecting the Work of the Fire Safety

Division
Acts and Regulations relating to Fire Safety

Fire Precautions Act 1971

Factories Act
Offices Shops and Railway Premises Act
Workplace ( Fire Precautions ) Regulations
-
Fire Safety and Places of Sport Act
Licensing Act
Gaming Act
Theatres Act
Animal Boarding Establishments Act
Betting, Gaming and Lotteries Act
Breeding of Dogs Act
Building Regulations
Caravan Sites control of Development Act
Children and Young Persons Act
Cinematograph Act
Consumer Protection Act
Dangerous and Wild Animals Act
Education Act
Explosives Act
Housing Acts
Mental Health Act
National Assistance Act
Nurseries and Childminders Regulations Act
Nursing Homes Act
Pet Animals Act
Petroleum Acts
Pipelines Act
Private Places of Entertainment Act
Public Health Act
Registered Homes Act
Riding Establishment Acts
Town and Country Planning Acts
Local Government (Miscellaneous Provisions) Act
Safety of Sports Grounds Act
Marriage Act
Health and Safety Legislation

Section 1 Regulatory The Fire Authority is the Enforcing Authority

Section 2 Advisory The Fire Authority gives Advice at the Request
of another Authority which is responsible for
the enforcement of these Acts

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Introduction Material – Best Value Review of Fire Safety

Every year in the UK around 600 people die as a consequence of fire and a further 18,000
are injured, many seriously.

To combat danger from fire the Fire Services Act 1947 required local
authorities to provide an efficient means of fighting fire. To meet this
responsibility authorities generally established a fire service.

The provision of fire appliances and trained firefighters offers protection to the
community, but they are a reactive solution to a danger that has already
become a reality. The ideal solution is to prevent the fire before it starts.

Fire safety activity by fire services is aimed at doing just that.

A number of fires resulting in significant loss of life lead to Parliament passing

the Fire Precautions Act 1971. That act placed a responsibility on employers
to ensure that adequate provision was made to allow occupants of premises
to escape should a fire occur. The Fire Precautions Act placed a responsibility
upon Fire Services to inform employers of exactly what measures they
needed to take and then to ensure that those steps were taken.

Fire Services established fire safety departments to enforce the Fire

Precautions Act and also give advice on fire safety matters to other bodies in
connection with a variety of legislation. These other bodies include Building
Control Departments, Environmental Health Departments, Health Authorities
and Residential Care Registration Authorities.

The outcome of effective enforcement was to drive down fire related death
and injury in the places controlled by legislation (principally workplaces and
hotels), unfortunately it did not cover domestic dwellings where death and
injury continued to rise.

This problem was clearly recognised in the early 1990’s leading to fire
services starting to look at initiatives within the community aimed at creating
awareness and changing behaviour. These activities becoming known as
Community Fire Safety or CFS.

Resources to undertake CFS were found within existing resources aimed at

legislative enforcement fire safety. Despite continual pressure from fire
services and from various studies into this activity no statutory duty to
undertake CFS has been established. The struggle for adequate resources
continues. As a consequence of this struggle the extent of CFS undertaken by
fire services varies hugely and there is no recognised format, although many
acknowledged examples of good practice are to be found.

As a consequence of the above circumstances, within the Service Delivery

Group of Gloucestershire Fire & Rescue Service (GFRS) can be found
enforcement lead Fire Safety Teams and a CFS Team. The activities of both
of which will be reviewed as part of the Best Value Review.

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The timing of the review is interesting in that we have started to move forward
into the next evolution of fire safety. In view of the large number of pieces of
legislation under which we provide fire safety advice and as a consequence of
the weakness in provision of CFS a new Fire Safety Order is due to be made
under the Regulatory Reform Act. The effect of the order, the first draft of
which is currently out for consultation, will be to bring the diverse sources of
fire safety work under one piece of legislation and to impose a duty to
undertake CFS.

The new Fire Safety Order will extensively broaden the scope of premises to
which fire safety law applies. It will place a far greater responsibility upon
the person responsible for a premises, who will have to risk assess and take
action to reduce all aspects of risk from fire to an acceptable level, without
prescriptive direction from the fire service. This shift of responsibility will
necessitate a change in the way fire safety officers approach enforcement and
lead to a more integrated approach. It is anticipated that the new order will
come into force in spring 2004.

With such a profound change on the horizon it would be foolish to ignore this
in terms of the review.

The continual evolution of fire safety has lead GFRS to its current mode of
delivery, this Best Value Review is a valuable opportunity for reflection and
will help set the direction of future development.

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Appendix 2

Fire Safety Best Value Review April 2002 to July 2003 Challenge
Review Team meetings will be held monthly to discuss progress Panel Meetings
As required by
Collection of the Chair
information and
progress review

Review Process
Review Team Progress Review
Review Outline Draft Report to
Covering the 4 C’s Draft challenge panel
Report to
SMT

April Winter September October November December January February March April May

Report to
Outline Report to Cabinet
SMT, Stakeholders 07/05/03
and Challenge
Challenge
Panel
Panel Terms T of R to
of Reference Cabinet
07/10/02 nd
22
October

Team meeting for review

– 1500 to 1700
– 1500 to 1700
– 1500 to 1700
– 1500 to 1700
– 1500 to 1700

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