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Part-Time Firefighters
EXECUTIVE SUMMARY
INTRODUCTION
This report details the findings of a programme of research conducted to investigate ways in which part-time firefighters can become more integrated within the Scottish Fire Service.
The aims of the broad research programme are to build upon the previous research 1 and:
1. Identify the relationships between the functions required to be delivered by part-time firefighters
2. Identify and examine the barriers and problems that are likely to be encountered in implementing strategic change in the part-time sector and explore ways in which these barriers and problems can be overcome
3. Advise on possible solutions and provide recommendations which will focus on the move towards fire prevention
The research methodology comprised three key elements:
1. A collation and review of the current literature relating to part-time firefighters in the UK and abroad.
2. A series of interviews with individuals in key stakeholder organisations in the Fire Service e.g. senior fire officers, key union officials, local authority officials with a Fire Service remit etc.
3. Both these elements of this study fed into a final series of group discussions, mini-group discussions and in-depth interviews, undertaken with whole-time and part-time firefighters, and in-depth interviews with senior officers involved in training and management throughout the Fire Service in Scotland.
Once the research was completed, a workshop was held at the Scottish Fire Service Training School in Gullane in order to discuss initial findings of the research. Attendees at this workshop were from a variety of organisations including the eight Scottish fire brigades, local councils, trade unions, stakeholder organisations and those with an interest in the role of the retained, auxiliary and volunteer firefighter.
DEFINING THE ROLE OF A PART-TIME FIREFIGHTER
Respondents believe the role of the part-time firefighter today should be placed firmly within the context of local community planning. Hence, any training and development provided to part-time firefighters should meet with the needs and expectations of the local community. Local risk assessments will be needed to define those needs and in turn identify the skills that will be required by part-time firefighters.
Historically there have been three distinct categories of part-time firefighter, although in some brigades these distinctions have become blurred in recent years. Many respondents suggest that there should no longer be any differentiation between retained, auxiliary and volunteer firefighters and that they should all be simply referred to as 'part-time firefighters'. Similarly, respondents suggested that all firefighters should be referred to simply as "firefighters" regardless of whether they are whole-time or part-time.
However, there were also suggestions that there should be a distinction between "firefighters" who are trained to deal with a wide range of incidents including structural fires, and "community emergency response teams" who are effectively technicians who contain incidents until supported and do not attend structural fires.
In order to achieve integration, consideration will need to be given to the provision of initial training and ongoing development, equipment levels and so on. For a truly integrated Fire Service, it will not be possible to maintain differences in these service aspects.
There are signs of cultural differences and tensions between whole-time and part-time firefighters, with part-time firefighters perceived by many of their whole-time counterparts as offering a second class service. Respondents believe that the public's expectations and needs are the same from both types of firefighter and there is a need to break down differences, real or perceived, in order to provide a truly efficient service across the board. One example of different treatment of part-time and whole-time firefighters is in the amount of training delivered, and the means by which it is delivered.
A number of approaches can be adopted that will help to address cultural and attitudinal barriers and these include
- Changes to language
- Introduction of IPDS
- Joint training exercises
- Offering the same training and development opportunities to all firefighters, dependent on skills and abilities and not length of service
- Offering the same basic levels of equipment to all firefighters
- Ensuring that all Fire Service managers promote cultural and attitudinal similarities, rather than differences
- Parity in remuneration and other benefits
Management within the Fire Service needs to be more strategic in its approach to the service offered to the community. The current structure is based on historical tradition and is based on what has evolved, rather than community needs. There is a need to assess community risks and needs, to define the roles to meet these needs and then develop staff competency for these roles.
TRAINING AND PERSONAL DEVELOPMENT
There is a need to ensure the same core competencies for both whole-time and part-time firefighters (retained, auxiliary and volunteer), and to ensure that consistent standards of training and development opportunities are provided to both. This is particularly important in the light of recent and possible future employment legislation where discrimination on the basis of part-time working may not be allowed. However, given budgetary restrictions and differences in terms of needs within local communities, it might be more feasible within Scotland to maintain two distinct categories of part-time firefighter - retained who would be trained to the same level as their whole-time counterparts and volunteer, who would operate in very small and / or remote areas offering a basic fire service to the community. In the medium term, it is important that training and equipment provided to volunteer firefighters is upgraded.
There is also a need for training to be sufficiently flexible to meet the needs of the local community and individual firefighters operating within that community. IPDS (Integrated Personal Development System) is felt to offer the necessary flexibility to cater for different needs between brigades and stations, while still delivering the same basic training and core competencies across all brigades via training modules. It affords an opportunity to recognise an individual's competence and skills and places emphasis on the identification of development needs. Offering nationally recognised qualifications and transferable skills is a very positive aspect to IPDS and offers benefits to both firefighters and their employers.
There are a number of other initiatives being piloted in relation to the delivery of training and provision of ongoing support and learning structures. A best practice guide is needed in the light of practical experience and implementation of each initiative. In the longer term it is likely that each brigade or station will need to decide which training options will be most effective in optimising the level of service they can provide to their local communities.
Offering nationally recognised qualifications and transferable skills is a very positive aspect to IPDS and of benefit to firefighters. Employers of firefighters also benefit in that their employees obtain additional skills that may be of use in the workplace.
There are a number of key elements of training delivery which are considered to be good practice and these are :
- Joint training sessions for whole-time and part-time firefighters
- Joint training sessions for teams from a number of different stations
- Better use of time available for training
- Some training to be delivered at different times such as weekends
- Making use of full range of delivery channels
- Offering specialist days out for additional training
- Allowing for development of specialist and different skills
- Offering a range of different roles and opportunities
If adopted, these practices are also seen to go some way to helping to break down cultural and attitudinal barriers that currently exist between whole-time and part-time firefighters.
Effective communication of benefits will be central to the successful introduction of any changes in training patterns or delivery and acceptance of those changes.
INTERCHANGEABILITY AND FLEXIBILITY
The concept of interchangeability and flexibility is perceived to sit well with the role of part-time firefighters. In some instances, interchangeability is already in evidence, with some part-time firefighters adopting new roles such as involvement in community safety. However, in most instances where interchangeability is in evidence, this is on an informal, rather than formal, basis. Before taking on any additional roles, there is a need for firefighters to ensure they have the appropriate training to perform their firefighting role in the community. If adopting new roles, the need to focus on appropriate training before adoption of these is recognised.
Respondents focus primarily on community-based roles that might be additionally adopted by part-time firefighters and most respondents were against the concept of part-time firefighters taking on control room duties or other duties such as paramedics. However, the concept of mixing two or three part-time roles to create a full-time job is perceived to be a means of attracting a more diverse range of individuals to the Fire Service.
A combination of IPDS and the South Wales pilot are seen to offer potential for the introduction of greater interchangeability, albeit tailoring adoption of appropriate elements from each in line with community and individual needs.
RECRUITMENT AND COMMUNICATION
There is an acknowledgement from most respondents that recruitment is an issue for fire brigades in Scotland. Where officers have been appointed specifically to deal with recruitment and retention issues, they appear to have been effective in raising awareness, increasing numbers of applicants and improving retention periods. There will be a need for the Fire Service to continue to introduce new and innovative solutions to deal with issues of recruitment and retention. Some respondents referred to a need to focus on the "product" rather than "marketing" and suggest that without changes to the product, recruitment and retention problems will continue.
Regarding internal communications, there is a lack of a two-way, formal communication structure both across the Fire Service and within brigades. The provision of information to firefighters is ad hoc, and senior officers' visits to fire stations infrequent. There were concerns from those attending the workshop session and some senior management that there are few opportunities for firefighters themselves to provide their views or engage in dialogue.
There is a need for greater liaison and collaboration across the Fire Service in Scotland. This would ensure that there is commonality in communication across all brigades.
Effective communication within the Fire Service will play an essential role in the successful integration of local authority fire brigades within Scotland. On an internal basis, there is a need to promote changes proactively and positively and counter existing tensions between whole-time and part-time firefighters.
On an external basis, there is a perception that the general public has a very low awareness of what is involved in being a part-time firefighter and there is a need to provide information to the general public on part-time firefighting in order to raise awareness and promote the benefits of part-time firefighting. There were suggestions that there is a need for a national generic advertising campaign that is backed up by other local campaigns and provision of information on a local basis.
For employers of existing and potential part-time firefighters, there are a number of key messages that should be disseminated in order to bring about a more positive attitude towards allowing staff to become part-time firefighters. Utilising endorsements from employers who currently allow staff to be part-time firefighters is seen as credible by other employers, and may at least prompt consideration by other employers in allowing their staff to become part-time firefighters.
There are various initiatives that can be undertaken in order to help market the Fire Service to a far more diverse range of individuals. In instances where initiatives have already been undertaken, the evidence would suggest that these have been effective.
The following chapters provide a more comprehensive account of each of the topics covered within this section.
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