FIRE SERVICES CHANGE PROGRAMME
PROGRAMME REPORT - JUNE 2007
Preface
This report on the Fire Services Change Programme (FSCP) traces progress since commencement of the project in February 2005, and on 1 June 2007 was finalised following a meeting of the High Level Implementation Group.
The Change Programme has run for just over two years and has made significant progress in the targeted areas. The challenge now is to mainstream and consolidate developments in the Community Fire Safety and Safety, Health and Welfare fields, and to continue to take forward the Competency model for career progression in the service and the Risk-Based Approach to Safety Management.
As well as the intrinsic benefits which the programme has realised, it has been a positive model of collaborative public service provision, dealing with development and co-ordination of initiatives in consultation with all stakeholders and their implementation by local government. The experience of the programme has confirmed many of the recommendations in the Review of Fire Services and Fire Safety in Ireland.
When viewed in conjunction with
· the strengthened fire safety legislation in 2003,
· the Major Emergency Development Programme approved by Government arising from the review of the Framework for Major Emergency Management commissioned in late 2004,
· the success of the capital investment programme which has seen fire service infrastructure (fire stations, the fire appliance fleet, equipment, communications and mobilisation facilities) brought on a par with best international standards, and
· he strengthening of the management structure in local authority fire services,
it is clear that many of the essential elements for the provision of an effective and modern fire and emergency services are in place.
However, it is evident from this report that these important services, and public safety, can benefit from a continuing focus on appropriate modernisation initiatives.
I wish to acknowledge the contribution of the members of the High Level Group, the Steering Groups and the Project Team to progress over the last two years, and to commend the report to the Minister for the Environment, Heritage and Local Government.
Ms. Geraldine Tallon
Chairman
FSCP High Level Implementation Group
CONTENTS OF REPORT
Preface
1 Introduction to Report
2 Background to the Fire Services Change Programme
3 A Framework for Implementation 2005 – 2007
4 The Four Pillars
4.1 Community Fire Safety
4.2 Competency Based Approach to Recruitment, Retention And Career Progression
4.3 Safety, Health And Welfare Enhancement
4.4 Risk Based Approach to Safety Management
Appendices
Appendix 1 – Membership of High Level Implementation Group
Appendix 2 – Membership of the Four Steering Groups
Appendix 3 – Polices and procedures specified by FETAC
1 INTRODUCTION TO REPORT
This report on the Fire Services Change Programme (FSCP) has been prepared for the Minister for the Environment, Heritage and Local Government. The High Level Implementation Group, which the Minister established to oversee the programme considered a draft of the report at its meeting on 1 June 2007, and the report has been finalised following this meeting.
The report records the work in each of the four prioritised work areas of the Programme. The proposal for this work was set out in the FSCP Framework for Implementation 2005- 2007[1]. The Programme was initiated in February 2005 and the report covers the period up to March 2007.
The report also sets out the background, context and process as well as the progress made in the Programme.
2 BACKGROUND TO THE FIRE SERVICES CHANGE PROGRAMME
2.1 Review of Fire Services and Fire Safety in Ireland
In February 2005 Mr Dick Roche, TD, Minister for the Environment, Heritage and Local Government announced the Fire Services Change Programme as his approach to implementing the recommendations of the Review of Fire Safety and Fire Services in Ireland [2] which was presented in March 2002.
Among the principal recommendations for change were;
Ø More focus on fire safety, including the introduction of community fire safety initiatives, enhancing fire safety legislation and better enforcement of both building control regulations and fire safety including “during performance” inspections
Ø The adoption of a new risk-based approach to determining emergency cover
Ø New approaches and structures for Major Emergency Management
Ø Introduction of competency based approach to recruitment, retention and career progression and a competency based training regime
Ø Enhancement of service through continued high level of capital investment to improve infrastructure and improved health and safety measures
Ø More frequent use of Section 59 agreements and better co-ordination of resources at Regional level
Ø More flexible deployment of staff at all levels
Ø The establishment of a National Fire Authority to implement the findings of the report
2.2 Launch of the Fire Services Change Programme
Following discussions with the principal stakeholders on the implementation of the recommendations, in February 2005 Minister Roche announced the Fire Services Change Programme. The FSCP was launched to advance the key fire safety and fire services recommendations of the Farrell Grant Sparks report in four priority areas:
· Community Fire Safety
· Competency Based Approach to Recruitment, Retention and Career Progression
· Enhanced Safety Health and Welfare
· Development of a Risk Based Approach to Emergency Cover
2.3 FSCP Project Structure
A Project Structure was put in place comprising three components;
· A High Level Implementation Group (HLIG) to oversee the implementation process on behalf of the Minister; (membership listed at Appendix 1)
· Four Steering Groups who would provide representation for stakeholders and give advice and guidance on the project work areas; (memberships outlined in Appendix 2). The membership of two of the steering groups were comprised from the members of the Fire Services Council. All the Steering Groups were supplemented by external experts.
· A Project Team who would consult with the Steering groups in each of the four areas, undertake the development work, make recommendations to the High Level Implementation Group, and take forward the approved projects. The Project Team members were selected from all ranks within the fire services
On the question of a National Fire Authority, the Minister expressed the opinion at the launch of the FSCP model that its focus should be on achieving the widely accepted changes recommended by Farrell Grant Sparks. The programme would provide an opportunity for all stakeholders to show commitment to the necessary change, and depending on the outcomes of the process, the question of how to build the structures necessary to support and embed change on a more permanent basis could be considered.
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The FSCP, together with other initiatives initiated by the Minister, particularly in relation to amendments to legislation in what became the Fire Services Act, 1981 and 2003 and a separate review of the Major Emergency Management Framework[3] and initiation of the Major Emergency Development Programme 2006 – 2008 was intended to address the major policy recommendations in the Farrell Grant Sparks report.
2.4 Project Communications Strategy
A Project Communications Strategy [4] was developed which set out the methods to be used to ensure that stakeholders were aware of and involved in the development and change implementation processes. The project structure provided for participation by and communication with all stakeholders through the Steering Groups.
The normal written communications between the Department and fire authorities remained the main channel for formal contact on FSCP matters. The project was, in this situation, relying on fire authority personnel to keep their staff informed of developments. However, to supplement this formal channel, some of the more significant communications methods used included:
· FSCP briefing/ information sessions on all FSC training courses.
· the FSCP project teams briefing tours/ sessions,
· project bulletins for every fire-fighter,
· the project website and dedicated e-mail,
· briefings/ seminars/ speeches,
Another significant channel established as part of the Communications Strategy was the appointment of Project Liaison Teams in eight regions, with one representative in each fire authority. The role of the liaison team member was as conduit for conveying information to all of the fire services personnel in their region on the progress of the Change Programme.
The Steering Group structure was successful in that it facilitated the flow of information to and from the Project Team to all the stakeholders and vice versa. The experience of the Steering Groups was challenging for all involved in that sometimes diametrically opposed perspectives were expressed on issues. Nonetheless, the Steering Group arrangement, and effective chairing at this level, was successful in ensuring that all voices were heard. It remains a challenge for any change process that, while all have to be heard, no group of stakeholders can have a veto on developments in a particular area.
The Project team used the normal communications channels for all formal information exchanges. In addition, other methods were used to gather information and to keep the local authorities and fire services personnel up to date with progress on the programme. In July 2006 fire service personnel were provided with an opportunity to input into a range of position papers in each of the four project areas. The September closing date for the receipt of comments was extended into October by request. All the parties had ample opportunity to respond in this timeframe. The level of response varied. All comments received were considered carefully by the Project Team before documents were finalised.
The Project Team dedicated a considerable amount of time to implementing the Communications Strategy, and the methods employed were effective to varying degrees. Nonetheless, the adequacy of consultation and communication was an issue which was raised at various stages of the project, as was the position of the Steering Groups in “approving” finalised documents.
3 A FRAMEWORK FOR IMPLEMENTATION 2005-2007
3.1 Introduction
A Framework of Implementation 2005-2007 was prepared by the Project Team following discussions with the four Steering Groups. This was approved in July 2005 by the High Level Implementation Group. This Framework for Implementation covered an initial two-year timescale February 2005-2007. It was intended that the Programme would be implemented on a rolling basis as projects within the four areas were developed and tested. It was recognised that some aspects of the Programme could have a longer time horizon than the initial two-year period, and that additional aspects might also be added to the scope of the Programme over time with the agreement of the High Level Implementation Group. Targets and timeframes were set out in the Framework for each of the four pillars.
3.2 Working Arrangements
The general pattern of working arrangements developed over the first year of the project was as set out in the Change Cycle diagram in Figure 1 below. The recommendations of Farrell Grant Sparks in relation to the four areas encompassed within the FSCP were the starting points for the work of the FSCP Project Team.
Initial discussions took place at Steering group level, which in turn led to the development of proposals by the Project Team. These proposals were further discussed at the Steering Groups and definitive proposals were brought forward to the High Level Implementation Group for approval.
These proposals were then developed by the project team members, and put out to local authorities for general consultation and further refinement. Consideration of implementation issues were also included before the developed processes were to be rolled out by the local authorities. This roll-out process involved the Project Team providing awareness seminars, materials and training courses for fire authority staff.
Figure 1
3.3 Project Staffing
The project team initially was composed of Department staff working on a part time basis. The Department’s Fire Adviser (Sean Hogan) was designated Project Manager. In keeping with the Farrell Grant Sparks recommendation that the expertise within the fire service should be harnessed for bringing about change, a project team comprised of fire service staff seconded on both a fulltime and part time basis, together with Department personnel, was created over the summer of 2005. The Department’s Fire Adviser continued to oversee the work of the expanded Project team, with one newly recruited member appointed as Project Team Leader (Pat Fleming) and another, Department’s Asst Principal Officer (Noeleen Behan), as head of project administration.
Full-time staff from various ranks of the fire services have been seconded to work on the Project Team. Part-time staff were also recruited from a large pool of applicants. The experience with the selection of staff from across the fire services has proved the validity and benefit of following the Farrell Grant Sparks recommendation. The assistance of fire authorities in facilitating and releasing staff on secondment for the Project Team is acknowledged.
3.4 Significant Project Milestones
Significant markers over the two years of the Programme include:
2005
Feb 05 Ministerial Announcement of FSCP
Feb 05 Initial internal Department Project Team put in place
Feb – May 05 Putting structures into place
Feb – May 05 Developing Implementation Plan
April – May 05 Project Team recruitment process
Sept – Oct 05 Seconded staff begin to come into place and induction
Oct – Dec 05 Engagement with four Steering Groups
Oct – Dec 05 Subject research/ development of proposals
Oct –Nov 05 First countrywide communication tour by project team
2006
Jan – Feb 06 Finalization of proposals in four pillars and approval by HLIG
Mar – June 06 Detailed development of proposals by project team
July – Sept 06 First consultation period on position papers
August 06 Launch of Smoke Alarm Pilot Project
Sept 06 Fire safety promotion function transferred to Dept from NSC
Sept 06 All part-time staff and first full-time secondee finished terms
Sept 06 Launch of Primary School Project
Oct 06 Primary Schools Programme training was first element to move into local authority implementation phase
Oct 06 National Fire Safety Week
Oct 06 Specification for RBA system produced
Oct – Nov 06 Working with Steering Groups on post-consultation finalization of documents
Nov 06 Meeting with Directors of Service regarding resources
Nov – Dec 06 Finalization of documents
Nov – Feb 07 Incident Command System “Training the Trainers”
2007
Jan 07 Contractors start providing CISM service for fire authority staff who did not previously have access to it in three CAMP regions