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PRINCIPAL INSPECTION REPORT HIGHLAND AND ISLANDS FIRE BRIGADE

OPERATIONS

Fire service operations represent response and intervention at a very wide range of incidents requiring effective co-ordination, planning, research and development.

Overview

87. Progress continues in development of the planning process within the Operations Sections with continuous monitoring of tasks and use of performance indicators being a key feature. The ongoing upgrade of Auxiliary Fire Stations appears to be having a major impact on the ability of existing staff to meet their normal commitments. The current management review needs to clearly identify the support structure required to sustain the expanding service. A number of areas were identified where improvements were possible with the following being the main points for consideration:

• To carry out operational risk assessments linked to resources and support structure necessary to deliver the outcomes.
• Prioritisation of workloads.
• Review to be carried out of Fire Control.
• Provision of essential communication equipment.
• To review procurement arrangements.
• Policy and formalised arrangements for maintenance.

General Policy and Planning

88. The planning process is now well developed and appears to be clearly understood by all stakeholders. The Local/Departmental Plans reflect the Corporate Aims of the Brigade with specific objectives being identified along with personnel responsible and days allocated for completion. Progress monitoring of these tasks being carried out at the quarterly meetings of the Performance Review Group and is also a standing agenda item at Brigade Management Team meetings. The objectives set for the Operations Sections are laudable, however, in meeting these objectives the effect on current and future workloads should be assessed to ensure that service delivery is not compromised. In addition, although a robust planning process is now in place the inputs to this process require to be reviewed. (See Organisation and Structure.)

89. A key element of the planning process is the ability to measure performance and where necessary to provide benchmarks. It is pleasing to note the Brigade's commitment to this process by the positive use of Statutory and Key Performance Indicators, Local Performance Indicators developed by CACFOA as well as Brigade Internal Performance Indicators designed to measure specific functions or areas of Brigade activity. A company has also been contracted to carry out surveys of premises that have been involved in emergency incidents to determine their satisfaction or otherwise with the level of service provided and the performance of crews attending.

Organisation and Structure

90. It is acknowledged that a more sustainable strategic leadership is being considered for the Brigade, however, as highlighted under Management Structure, the mechanisms to support the postholders are also a key feature. Although progress has been made in relation to Operational Risk assessments by the production of a Fire/Incident Plan Template very few actual assessments have been carried out. There were also a number of other risk critical areas identified during the inspection that need to be addressed. Staff suggested that they could not deal with these issues due to existing workload commitments. The continual upgrade of Auxiliary Fire Stations has also had a major impact on the workload of existing staff therefore the sustainability of these plus future upgrades requires to be urgently addressed. The health, safety and welfare of personnel should be a fundamental requirement to the allocation of resources and prioritisation of workloads therefore in the interests of firefighters safety management should:

• Carry out an operational risk assessment throughout the Brigade area to determine what operational activities require to be delivered.
• Carry out an assessment of the resources and support structure necessary along with the financial implications for the effective delivery of all activities identified.
• Ensure that management functions are devolved to appropriate levels with workloads and responsibilities being clearly identified.
• Prioritise existing and future workloads with expected outcomes identified and within definitive timescales.

91. The Brigade has formed a working group to investigate interoperability, equipment compatibility and other joint working arrangements at cross-border incidents. In addition, a policy document and training note has been agreed by the Management Team regarding a revised Incident Command and Control System. It is understood training in the new system will commence in April 2003 with implementation scheduled for July 2003. In the interests of firefighters' safety both these issues should be completed at the earliest opportunity.

Communications and Control

92. There has been no further progress regarding the Best Value Review of Brigade Control. However, a very comprehensive document Control Profile - Core Objectives has been produced by the Fire Control Officer and an analysis of all call handling arrangements and review of staffing levels has been carried out. It is again suggested the Brigade may wish to utilise the results of this initial work to inform a Best Value Review of Fire Control.

93. From evidence provided it was established that in excess of 50 Fire Stations that are provided with Home Office Specification (GD 92) communications equipment are only provided with a primary communications bearer. This is not considered to be a desirable arrangement and the Brigade should address the provision of a secondary independent bearer to these Fire Stations as a matter of urgency. In addition, the provision of such facilities should be considered as an inclusive requirement within the brief for the provision of any new or replacement Fire Station.

94. The existing fireground radios provided on all fire appliances are not of the Intrinsically Safe (IS) type and therefore cannot be utilised at incidents involving flammable atmospheres. It is considered the provision of four IS radios carried on the Emergency Tender at Inverness is insufficient to ensure the safety of firefighters responding to incidents throughout the Highland and Islands area. It is accepted that it is incumbent upon an Officer in Charge to carry out a risk assessment when arriving at an incident to determine the risk and to deploy appropriate equipment. However, in many instances, particularly where breathing apparatus is deployed the only person that can determine the risk involved is the firefighter who has entered the premises. Additionally, when firefighters are wearing breathing apparatus and Personal Protective Equipment (PPE) they may be unaware that flammable gases are present in the atmosphere. It is assumed that following risk assessment of the industrial and commercial premises throughout the Brigade area that a number will contain flammable gases, vapours or liquids. In addition many road accidents now involve highly flammable products and the heating and cooking facilities in many domestic premises are fuelled by gas. The Brigade may also have to deal with incidents underground where there is always the risk of the presence of flammable materials. There is likely to be a large percentage of premises throughout the Brigade area where it is known that flammable or explosive materials may be likely to be encountered and unfortunately there will also be others where these substances will be encountered unexpectedly. The Brigade may therefore wish to reassess the adequacy of existing arrangements in line with the guidance contained in Dear Firemaster Letter 4/1992.

Procurement

95. A comprehensive procurement policy document has been devised and will now be considered by the Management Team. However, the policy does not appear to contain clearly defined risk assessment methodologies. Risk Assessment is an integral part of the procurement process, therefore it is essential that all procurement processes be subject to risk analysis that involves identification, estimation and evaluation, all of which should be fully documented. The policy should also provide details of how it will be monitored and reviewed.

96. The Brigade currently has limited access to information regarding procurement performance. Effective mechanisms and accurate management information is essential to enable spend information to be analysed in a way that enables Senior Management to see what is being purchased, from whom and whether the most effective methods are being utilised. The Brigade therefore needs to consider introducing a more formal arrangement for obtaining management information regarding the procurement process which will enable:

• Initial and whole life costs to be considered.
• Policies for replacement based on empirical evidence.
• The true costs of procurement transactions to be determined.
• The measuring and targeting of year-on-year value for money improvements.
• Benchmarking with other authorities and brigades.
• Development of performance standards.

97. A welcome development has been the joint collaboration with other Brigades regarding the provision of Personal Protective Equipment. Liaison is also taking place with other brigades regarding portable pumps and breathing apparatus with a view to collaboration in procurement of these items.

Appliances and Operational Equipment

98. As highlighted in the previous inspection report, liaison has been taking place with other brigades regarding purchasing arrangements. The joint collaboration with Shetland Island Council, Shetland Island Enterprise, the National Trust for Scotland, The Civil Aviation Authority and the Brigade regarding the provision of a Fire Engine for Fair Isle being an exemplar of this type of arrangement. The Brigade may therefore wish to extend this joint co-operation with other brigades to the purchase of vehicles.

99. The Brigade continually evaluates and reviews operational equipment with the Appliances, Equipment and Uniform Committee co-ordinating the views and suggestions from stakeholders regarding improvements to, replacement of, and purchase of, operational equipment.

100. At the time of inspection a Personal Protective Equipment Review Team were carrying out research into the provision of PPE for use by personnel when undertaking structural firefighting and other operational activities. In addition, due to difficulties experienced with a current PPE supplier, the Team also addressed interim arrangements for PPE provision. It is understood that replacement of the current standard of PPE is to be scheduled over a five-year period and it was confirmed that during this period revised instruction, training and monitoring and maintenance arrangements will be introduced to cover the existing and interim provision PPE.

Maintenance Arrangements

101. Maintenance arrangements are predominately carried out by the Property Services Departments of the four constituent local authorities. The Property Services Departments utilise an approved list of contractors for general maintenance purposes. The Brigade also has a Service Level Agreement (SLA) with Highland Council who manages maintenance arrangements on behalf of the Fire Board. The SLA is currently being reviewed. The Highland Council also provides the professional services for refurbishments and new builds. With the exception of financial monitoring there did not appear to be any formal arrangement in place with Highland Council to ensure the quality of service and supplier performance was being achieved for property maintenance. Consideration should therefore be given for a more formal arrangement for all maintenance arrangements, which should include the following objectives:

• to ensure the Service is receiving what it is paying for;
• to maintain and improve the providers performance;
• to identify any performance problems at an early stage and remedy them; and
• to create and maintain an information database on providers' performance for the Service's use.

102. The Brigade currently does not have an integrated planned maintenance regime. These arrangements are being re-assessed and as part of the PPP initiative detailed structural surveys are being carried out of all premises. The results of this work will inform future planned maintenance needs.

103. The maintenance policy for transport is based upon a Forward Planning Document approved by the Fire Board in 1990. The brigade may wish to consider whether the arrangements outlined in this document are still valid.

104. As detailed in the previous report comment has continually been made since 1996 that the servicing and inspection frequency for operational vehicles is not in line with the guidance contained in the Vehicle Inspectorate Heavy Goods Vehicle Inspection Manual and the CACFOA Recommended Best Practice for the Maintenance of Fire Service Vehicles. Currently the inspection and servicing of operational vehicles by the Brigade happens twice per year. Planned Preventative Maintenance (PPM) is essential to maintaining the effectiveness, efficiency and economy of the fleet. An integral part of successful PPM is the monitoring of defects in relation to the vehicle inspection and maintenance programme. The Guidance recommends that safety and fitness inspections should be carried out at a maximum of four-monthly intervals for low mileage vehicles. It is therefore pleasing to note that a review is to be carried out of the current inspection and servicing arrangements.

The Brigade may wish to extend this review to cover:

• current and future workloads;
• alternative servicing arrangements;
• staffing requirements;
• support facilities; and
• defect reporting.

105. In meeting the recommendations of Technical Bulletin 1/94 for the testing and maintenance of operational equipment, the majority of the maintenance is carried out by the Brigade Workshop. Any item of equipment that requires periodic maintenance and testing by the Workshop is provided with a unique serial/fleet number and is recorded on the Terian Fleet Management System. However, accurate records require to be maintained regarding use, repairs and maintenance of all equipment from purchase to disposal. The Brigade should therefore ensure that all essential operational equipment is subject to this arrangement.

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