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REPORT OF THE PRINCIPAL INSPECTION OF STRATHCLYDE FIRE BRIGADE 2003
STRATEGIC MANAGEMENT
Strategic Management is concerned with leadership direction and effective performance of desired outcomes.
Activities include management and planning of all resources and assets together with financial and performance monitoring. Consultation and information management are also important aspects with this activity.
Overview
11. There has been considerable ongoing development within the Brigade that has continued despite a difficult year, which involved a national fire service dispute and industrial action. The impact within Strathclyde Fire Brigade has been significant since the Firemaster held throughout the period the post of President of the Chief and Assistant Chief Fire Officers' Association. This role inevitably involved a considerable personal workload that had to be managed alongside the internal affairs of the Brigade. Recognising this feature, it is pleasing to report that the process of change has continued within the Brigade.
12. The inspection did reveal the following improvement areas:
- A strategic plan is not produced and it is suggested that mapping all the existing initiatives would be particularly helpful in providing an overview of the strategic direction being sought by the Brigade.
- In reviewing the Brigade's establishment it is noted that there has been an absorption within station establishments of staff seconded for training purposes. These should be correctly allocated to their training role.
- The establishment review also illustrated that the requirement to have operational command levels appropriate for various scenarios has not been clearly established.
- A review of information offered to the public indicates that the externally accessed website was not particularly good in terms of presenting the wide range of activities that the Brigade has undertaken.
- Internal communications were found as needing improvement. This was partly to reflect the number of Unions involved in the Brigade but equally to ensure that strong connections exist between Brigade managers and those responsible at station level.
- Appraisal systems are now being considered in some detail within the Brigade and it would be a useful demonstration of commitment if senior management undertook 360° reporting.
13. In addition to the above improvement areas a number of areas of good performance were found. These included:
- In community safety there has been the introduction of 13 community firefighters. It is important that they be placed in the context of the overall integrated risk management approach being developed by the Brigade.
- Many technical developments identified were during the inspection in the field of mobile data communications.
- Work has also been undertaken in fleet management which has shown positive results, both for staff and the Authority.
- The general approach to working with the community in community safety initiatives is especially notable.
- The Brigade had also established a Risk Management Unit which helped draw together at an Authority level those challenges which are arising on a fairly constant basis in all brigades.
14. Each of these approaches has some merit and offers good practice.
Performance Monitoring Inspection 2002
15. In discussion it was obvious that many of the areas identified during the previous performance monitoring inspection conducted between 23 and 26 October 2001 had been undertaken. Steady progress was found in most areas and there had been good responses to those areas highlighted for further development. One issue that remained to be addressed, which is referred to later in this report, is the need to bring together in an integrated way information technology and communications and a firmer proposal is required as to how to manage management information systems in a more corporate way.
16. Overall, however, the Inspectorate were satisfied that the majority of issues identified for development had been undertaken against the background outlined of a difficult year for the fire service nationally. This review also revealed that although there had been considerable discussion in terms of the original First Impressions document produced by the Firemaster to illustrate a corporate approach, a further development was a second document Beyond First Impressions. The second document, however, contains many subjective comments and in discussion it was identified that this could be improved by mapping the arrangements to a strategic planning approach.
17. Concern was also expressed by the Brigade that the pension deficit likely in 2004/ 2005 will create major difficulties at a funding level. The Brigade estimates up to 5m will be required to manage through this process and although ill-health retirements are falling, senior ranks are likely to leave in substantial numbers.
Service Planning
18. Progress has been made in most areas as already identified. The major difficulty found was that although there is a defined management cycle which involves, in May and June, senior management discussing their requirements and likely financial bids for the following year, this is managed by an informal process. In addition, although this informal discussion is subsequently ratified through the Members of the Fire Authority discussions in Capital, Best Value and Revenue groups; the Corporate Strategy Team, to which all Heads of Department work, does not have an overview in terms of a strategic direction. This comment is made not to reflect that all planning is not well organised, but to identify an area of positive improvement. The plans seen at departmental level are well focused and organised being set against performance targets involving regular monitoring. What is missing, particularly for the outside observer, and perhaps for staff engaged within departments, is the broad overview of how these priorities are inter-linked into the Brigade's corporate strategy. The Brigade Management Team effectively controls the service plan through regular discussion at minuted meetings.
19. It is suggested that it would be helpful if all the various initiatives and priorities were therefore mapped into an acceptable form of corporate structure to provide an overview of the clear linkages that exist between the various initiatives. It is further suggested that this corporate overview may best be presented in a visual rather than text form given the size and complexity of the organisation. This will avoid an unnecessary bureaucratic approach but ensure that there is a clear and obvious routing for most of the activities that are being undertaken.
20. One element which was notable in terms of the overall corporate approach was the establishment of a Risk Management Unit. Effectively this unit takes an overview of all the issues that may arise and affect the Brigade's capacity to meet its commitments, either legally or through financial challenge. Risk assessment is undertaken for all key areas of the Fire Board's activities with each directorate being responsible for their analysis. The Risk Management Unit then reviews these risk analyses and provides a level of quality assurance before any commitment is made by the organisation. The Unit therefore provides a very useful organisational approach to meeting commitment and managing risk. It was identified that the Risk Management Unit's work could be improved by providing it with a remit to take account of issues that are likely to arise externally and directly affect the Brigade and Board. Incorporating this feature will help identify possible service failures which might be occasioned by external rather than internal influences.
Resource Management
21. The Brigade structure was last determined in 1994 and is currently in the process of being considered against the likely requirements of the coming years. In particular, internal discussions have occurred in relation to the development of integrated risk management and the Fire Board is likely to receive a preliminary outline this August of how this process will be taken forward. One issue that will arise in these circumstances will be the methods by which management is undertaken and a new group needs to be established to look at these wider risk management issues. This will provide a complete overview of the existing resource assessment approach.
22. There has already been a support staff review, although those staff operating within the area of information technology remain to be reviewed.
23. Within the management structure considerable effort needs to be made on internal and external communications. The Fire Board is also committed to using the quality scheme (EMQS) and other processes such as the ISO 9000 assessment standard. This work remains to be taken forward but Board Members do take into account Best Value Reviews and have worked with the Brigade Management Team, most recently in looking at issues around the workshops and fleet management. In addition, the Brigade Corporate Team undertakes the role of scrutiny on all strategic issues, although it was noted that frequently this broader reporting tends to be subjective. It was found that there is considerable information provided in a very detailed way in reviewing all aspects of the Brigade's internal work. The level of performance work management, and the tools used, is highly refined and provides considerable information for each of the Directors in terms of their responsibilities.
24. The overall approach has been to share responsibilities and seek to balance the bureaucracy against the risk likely to arise from poor performance. The Firemaster does attend the Corporate Strategy Team meetings and provides a link between that team and the Brigade Management Team. The Director responsible for the Corporate Strategy also sits within the Brigade Management Team providing the planning link.
25. Major Best Value Reviews are often initiated by the Brigade Management Team and a new management information system manager and senior manager are being appointed to undertake a review of the overall management system to help draw together the various directorate planning approaches. It was in this area, as already mentioned, that it became apparent that it would be helpful to have better data management providing a monitoring link to Brigade strategic objectives so providing the Corporate Strategy Team members with a broad performance overview for the Brigade Management Team in terms of identified priorities. The importance of introducing an effective management information system, highlighted in the earlier report, is therefore restated.
26. Best Value Reviews are initiated by this group and during inspection those reviewed related to fleet management and the Brigade workshops. It was identified that the Brigade's reserved fleet had been considerably reduced during a three-year programme of change. Three workshops had been reduced to two and the operational hours of those two workshops extended so that they are open between 06:30 and 22:00. The workshop service had been re-branded as a fleet service and it was hoped to go to a higher level quality assurance system working to the ISO standards next year. Options for the provision of the fleet had been widely considered, including matters such as fleet leasing. In addition, fleet managers had begun working with external providers to provide quality assurance and audits and a near-miss reporting system had also been introduced. The Association of Public Service Excellence had undertaken the quality assurance approach and options had arisen which had provided key savings. With the effect in reductions in reserve fleet and workshops and extension of opening hours, the number of staff had also reduced whilst output had risen. It was apparent that the efforts made to conduct this Best Value Review had been extremely positive and represented a good example of the application of Best Value principles to obtain improved performance and reduce expenditure.
27. One further innovation by the fleet manager had been the introduction of a mobile training unit for the use of breathing apparatus. This unit provided at a cost of around 310,000 was witnessed in operation and did offer excellent mobile training facilities. It was advised that it was well received by all those stations which had access to it and that since its introduction enabled many part-time staff who would not be able to travel routinely to undertake real fire training to gain that experience within their local environment. Very few restrictions have been identified despite the size of the unit in moving it through the Brigade area and it did again appear to offer a good example of innovation and practical performance improvement.
28. As part of the overall inspection and examination of Best Value approaches, opportunity was taken to examine a series of information technology based performance 'wizards'. These had been created to help provide managers in various locations with active information in their areas of responsibility. One examined related to human resources and it was seen to provide a considerable amount of information in a very fast and inter-active way. The development of this tool is something again which represents good practice and helps illustrate the level of detail Brigade managers are now able to achieve when considering the areas under their responsibility.
29. Opportunity was also taken to review establishment needs and the command staffing of the Brigade. A fire cover review had been undertaken between 1997 and 1999. This review had now been supplemented by a new approach relating to integrated risk management in which a team of around 7 staff had been appointed. The Brigade was in the process of preparing for presentation to the Fire Board an initial view of how IRM might be taken forward. This would take account of guidance issued by the Inspectorate as the process move forward across Scotland.
30. It was also indicated that the establishment at Oban had now been achieved to enable this station to go live with one whole-time appliance. Section 2 and 12 mutual aid agreements with fire brigades had been reviewed and normal resource management practices for pre-determined first attendances were within acceptable standards. The Brigade operates restricted turnouts for part-time staff to a minimum staffing of 4 per appliance with the consequential risk that in remote locations attendance at potentially life-threatening incidents might be delayed even though 3 staff were available. Likewise there are identified areas where there is a failure to meet existing standards of fire cover. The Brigade should consider these issues in detail as part of the work already commenced relating to integrated risk management.
31. To help improve information flow to operational staff for safety and firefighting purposes, the Brigade is part of the national Firelink mobile data trials but has already established itself well to the lead in terms of mobile data. It has begun the process of reviewing many of its special appliance requirements, including those related to dedicated height vehicles and heavy rescue. In the latter area, considerable change has already been made to place additional rescue equipment for road traffic accidents on the main pumping fleet and so reduce the commitment to rescue tenders. Following safety evaluations, it is also determined to remove from use all-terrain vehicles.
32. One area of operational planning and resource which did appear to require formal review and determination was that related to command officers. It was identified that the Brigade at any time has a minimum of 2 principal officers, 3 senior divisional officers, 5 divisional officers and 10 assistant divisional officers on duty. What was less apparent was whether these officers were rostered in such a way to provide that minimum level of cover on a consistent pattern across the Brigade. This is one area that would be worthy of further examination and subsequent confirmation.
33. It was also found that within the Brigade establishment officers assigned to training functions, have been allocated to operational rider station establishments. This gives rise to a confusing picture as to actual responsibilities and duties and it would be appropriate to exclude those officers allocated to the Brigade Training Centre or to similar supportive functions from those who are clearly provided as riders on operational appliances. A review to undertake this task is relatively straightforward and it would help clearly identify the operational as opposed to support establishments.
34. Within the workforce generally, it was noted that considerable amounts of recording of data is done electronically. Discipline as an issue was described as not significant although at the time of the inspection it was advised 16 grievances were outstanding. Levels of sickness absence are generally falling and the Brigade has also appointed an occupational psychologist to help manage through assessment centres and work with managers on their recruitment processes which do appear to follow normal practice. It was suggested that in the development of assessment centres the Brigade should avoid going too far in front of what are national developments relating to the use of assessment centres for all ranks throughout the service as part of the Integrated Personal Development System. Finally, it was noted that within the human resource area that the previous director of communications had retired and considerable work was now underway to help bring forward a new specification and contract for a management information system.
Managerial Commitment
35. The Brigade has conducted an employee survey during 2001 using consultants, which did report a negative view of the Brigade's Management. It is now conducting a further survey into work life balance. Consultants have also been used to examine media marketing and this has resulted in a focus being made on how the brigade inter-relates and liaises with the media generally. Internal work has been delayed by the recent industrial action but it is recognised that there is a need to improve internal communications.
36. The process of staff assessment as already mentioned has started to move forward with assessment centres being developed. Since this is in advance of the IPDS assessment process it would be helpful in demonstrating commitment to the process if senior managers themselves undertook to allow 360° reporting of their own performance. How this is taken forward really rests with the Brigade but if the process of demonstrating managerial commitment to the workforce is to advance, it is possible that operating in this way may make significant change. The Brigade may, of course, wish to follow the developing IPDS process more closely as it now advances and defines the assessment.
37. It is notable that because of the Firemaster's present position within the Chief and Assistant Chief Fire Officers' Association, considerable information is available to senior brigade staff in terms of an overview of where the fire service is progressing at any particular time. This opportunity has not been missed by senior officers who have taken the opportunity to develop initiatives which do reflect a modern approach and a high level of commitment to continuous improvement within the Brigade.
38. Activities that do enable staff to work outwith the Brigade are actively encouraged and there are a number of illustrative examples where the Brigade was sought to engage with other partners, or introduce external review into its own arrangements so that it can learn and identify weaknesses with other bodies.
39. The general view formed was that Strathclyde was a Brigade that was supportive of its staff and hoped to continuously expand the opportunities available to all those within the organisation. Good ideas are therefore shared informally within the Brigade and it is suggested that individual officers may wish to consider some informal processes which do allow for a wider use of the available knowledge. How this is undertaken is something the Brigade will need to work through for its own solution given the scale and complexity of this particular organisation.
40. One activity that demonstrates the level of commitment to external activity is that related to safety. The community fire safety programmes which include youth schemes and firefighters fitting smoke detectors in individuals' homes do help illustrate the breadth of commitment towards a change from an intervention to a preventative culture. The Brigade has committed itself over the review period to some 25 such projects and although there is a need to reduce these activities in some areas, the Brigade remains committed. Consequently they have appointed 3 community fire safety co-ordinators, which it is intended to extend to a further 8 so that a relationship is developed with each local authority. Work has also been undertaken within the Glasgow Museum Transport Exhibition to help improve access for schools to gain information on fire. Similar arrangements have occurred at Pollock with the building of a 'Fire House' to provide programmes aimed at children's safety. The Brigade is clearly aware of some of the difficulties in its community and its firefighters have had to confront serious personal attacks. Nevertheless they remain committed to finding the best ways of working with the community.
Consultation
41. The Brigade states it has a high commitment to consultation and has utilised the service of external providers to gain survey information relating to public opinion about its activities such as after the fire responses. These reports have been progressed at senior level through the Brigade Management Team and on to the Fire Board. Action plans have introduced proposals such as fire leaflets and have also identified a number of areas of weakness to follow up. Leaflets have been produced to improve information about the Brigade and wide distribution is being undertaken.
42. The Brigade has recognised that its internal communications do have some difficulties and is undertaking a tender exercise to produce an action plan to how best to improve these arrangements. It is also working hard to rebuild relationships with internal organisations that may have been damaged during the recent industrial action. Given the work that has been undertaken by the Brigade, it was disappointing to find that although annual reporting with statutory performance indicators is produced in a lively format, the Brigade's own website did not convey anything of the range and depth of activities and innovation that was seen during the inspection. Given that many people today use the Internet to access information, some investment in this area would help improve an understanding of the Brigade's activity and its current performance. Brigade managers have identified that their external communication role will largely be overtaken by the ultimate approach adopted towards integrated risk management. They have already started to work hard with partners to gain access to those groups which may be described as hard to reach. This is particularly important in a Brigade like Strathclyde which has a diverse population both in terms of social and ethnic groupings.
43. Considerable time was devoted during this inspection to meeting with representatives of the workforce and discussions were held with senior branch officials of UNISON, the Fire Officers' Association, the Fire Brigades Union and the Retained Firefighters' Union. These meetings did indicate various tensions and also some improvements. Some Unions, for example, were appreciative of a change in approach which was appearing to give rise to better communication between the representatives and senior management. Some described their internal communications as spasmodic or reactive and asserted that little had been achieved in re-establishing formal meetings. Others reported that they were content that the processes were now being put in place to allow more formal liaison, although they still felt they were restricted to dealing with matters of a technical nature rather than related to policy strategy or conditions.
44. Generally, when the Brigade was asked to respond to complaints, difficulties or issues relating to individual wellbeing, it was reported that this was positive and that genuine concern was expressed by management and effort made to rectify unsatisfactory situations. Nevertheless, some of the Unions were reporting a feeling of exclusion and effort would be needed to build stronger working relationships. One point which did emerge in general from these conversations were illustrations of where command decisions did not appear to have the same force or relationship to the original Brigade Management Team decision. This observed weakness of communication between different levels of management is not unusual in a large organisation but again this is something that needs to be addressed if the Brigade is to achieve its stated aim of good internal communications.
45. Particular emphasis was placed upon the relationship with the Fire Brigades Union and it was heartening to hear that the relationships, which prior to the dispute had been generally good, had managed to be continued after the dispute. Clearly there were areas where difficulties had arisen and to some extent these had become personalised. Nevertheless the overall view of those officials was that they were generally pleased that established systems and approaches had been able to continue and that communications had remained open. Officials also opined that the establishment of a new Fire Board, following the recent local government elections, provided an opportunity to look forward rather than back and were therefore positive in general about how the Brigade might progress. The officials reported therefore that generally the Brigade was positive in its industrial relationships when reacting to concerns and issues but were cautious of the considerable challenge ahead in terms of how the fire service nationally moved forward and how this would relate internally as matters such as integrated risk management were progressed.
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