Scottish Government

REPORT OF THE PERFORMANCE INSPECTION REPORT FIFE FIRE AND RESCUE SERVICE 2004

December 2004

A Report by
HM Fire Service Inspectorate for Scotland
St Andrew's House
Edinburgh

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CONTENTS

Executive Summary
Recommendations
Section 1 The Strategic Management of the Service
Section 2 Integrated Risk Management Planning
Section 3 Integrated Personal Development System
Section 4 Community Fire Safety and Local Government (Scotland) 2003
Section 5 Fire Safety Issues
Section 6 Heads of Agreement
Section 7 Diversity and Equality Issues
Section 8 Health and Safety
Section 9 Information/Communications
Section 10 Personnel Attendance Levels
Section 11 Freedom of Information Act
Section 12 IT and Data/Information Capture
Section 13 Funding

FIFE FIRE AND RESCUE SERVICE
PERFORMANCE INSPECTION - 11, 12 and 13 OCTOBER 2004

Background

As Fire and Rescue Services across Scotland move towards implementation of The Modernising Agenda, the Inspectorate will inspect the Services between October 2004 and March 2005. The findings of the inspection will be reported to Ministers, the relevant Fire Authority, the Firemaster and will be available to the public.

Aims and Objectives of the Inspection

The aim of the inspection is to support, assist and, where appropriate or necessary, challenge the Fire Authority and the Service's progress towards modernisation in accordance with National Guidance and within Best Value.

The objectives of the inspection are -

To assess:-

• The overall strategic management of the Service;
• Progress on the Fire Authority's Integrated Risk Management Plan (IRMP), including compliance with National Guidelines and timetables;
• Progress on the introduction of Integrated Personnel Development System (IPDS), including Rank to Role and the opportunities this presents particularly for retained/part time and support staff;
• The Fire Authority's preparedness for the new Statutory Duty (Fire Service Bill) of Community Fire Safety and the duties contained within The Local Government (Scotland) Act 2003;
• The Fire Authority's plans to become the enforcing authority for all fire safety issues (Fire Service Bill);
• The degree to which the Fire Authority is utilising the service delivery flexibilities arising from The Heads of Agreement signed between The Employers and the Fire Brigades' Union in 2004;
• The Fire Authority's and the Service's progress on Diversity, Equality of Opportunity and Cultural Change and compliance with all relevant legislation;
• The Fire Authority's performance on Health and Safety at Work in accordance with relevant legislation and guidance;
• The Fire Authority and the Service's information flow, staff communications and general consultation arrangements across all groups of staff;
• The Fire Authority's performance in terms of staff attendance levels;
• The Fire Authority's performance and compliance with The Freedom of Information Act and general handling of complaints etc;
• The Service's ability to maximise Information Technology (IT) and central data capture;
• The Fire Authority's progress on identifying realistic efficiencies to enable the transitional funding for whole-time operational staff (provided by the Scottish Executive) to be absorbed over the Spending Review 2004 period; and
• The opportunities taken by the Service and/or the Fire Authority to review the uniformed Service establishment (Section 19 of The Fire Services Act 1947).

EXECUTIVE SUMMARY

During the inspection it became very clear that the Service and the Fire Authority is in the "improving" category in terms of overall performance. The remainder of this report and subsequent recommendations are designed to support continuous improvement.

It was noticeable that the Service is determined to become a "learning organisation". The senior management team clearly invite feedback and generally try to act upon it. Credit should also be given to the fact that many areas reported on in this report are "known areas to address" by the senior management team and the Fire Authority. It is the challenge of prioritisation and resourcing that is now uppermost in their minds.

There is a great deal to commend both the staff and the Fire Authority for within Fife Fire and Rescue Service. The Service and the Fire Authority are effectively discharging their duty within the general terms of The Fire Services Act 1947. In realising the early benefits of Integrated Risk Management Planning (IRMP) and other elements of the reform agenda, the Inspectorate is willing to work with the Service in an advisory role on the plan towards full implementation of IRMP in April 2005.

The Fire Authority is invited to adopt the enclosed recommendations and utilise them within the Modernising Agenda and their associated action plans.

JEFF ORD
HM Chief Inspector of Fire Services

10 December 2004

Note: For further information relating to Fife Fire and Rescue Service visit their website www.fifefire.gov.uk

RECOMMENDATIONS

Section 1 - The Strategic Management of the Service

1 As a matter of urgency the number of initiatives, projects and reviews should be examined and prioritised wherever possible with a further view to aborting or removing any area which does not directly improve service delivery. (Para 1.4)

2 Full opportunity should be taken to investigate the secondment of appropriate staff from the Council into the Fire and Rescue Service without direct impact upon the service budget. (Para 1.5)

Section 2 - Integrated Risk Management Planning (IRMP)

3 Without detriment to the ongoing need for a dynamic database, urgent consideration should be given to the skills set required to create alternative proposals for service delivery which utilise not only the database but also FSEC and professional judgement supported by underpinning evidence. Such consideration will lead to a reduction in the wasteful use of resources, e.g. risk-based operational response to automatic fire alarms etc. (Para 2.2)

4 The Fire Authority's draft 5-year programme should be urgently reviewed with a view to achieving an early introduction of call reduction measures, risk-based operational response, more productive time for training and development and, most of all, greater use of operational crews for fire safety duties. This can be achieved utilising historical data, professional judgement and underpinning evidence. (Para 2.3)

5 When considering task analysis for crews attending operational incidents, incident experience and the reality of multi-tasking should be taken into account. (Para 2.5)

6 The IRMP document should contain a reference to the agreement appertaining to appropriate/necessary working on nightshifts and public holidays. (Para 2.6)

7 It is accepted that the arrangements for deployment of urban search and rescue resources are still at the conceptual stage in Fife. Much depends on establishing an appropriate deployment strategy. However, this is inextricably linked with a review of the Service's existing specialist rescue arrangements. It is noted that to enable this to progress, the management team will have to consider these issues across a number of activity areas including IRMP as well as the current review of new dimension deployment arrangements being undertaken by the Scottish Fire Inspectorate and CFOA (Scotland). (Para 2.7)

Section 3 - Integrated Personal Development System (IPDS)

8 It is recommended that the Service looks to expand on its training and exercise programme to involve the deployment of mass decontamination and urban search and rescue facilities provided by the Scottish Major Incident Units in neighbouring Brigades to test mutual aid arrangements and validate planning assumptions. (Para 3.1)

9 It is recommended that the Service examines what, if any, flexibility may arise from the forthcoming removal of the recommended standards of Fire Cover in terms of greater availability for training. (Para 3.4)

10 The Service should further consider all staffing options across its service delivery to identify any opportunities to further integrate retained/part time and support staff on a role basis rather than the previous traditional method. (Para 3.6)

11 Training on New Dimensions capabilities should be developed over the coming months. (Para 3.9)

Section 4 - Community Fire Safety and The Local Government (Scotland) Act 2003

12 The management team should urgently consider the options paper for community safety provided by the Head of Department in preparation for the forthcoming statutory duty of community fire safety. (Para 4.1)

13 All community safety initiatives should be evaluated to ensure they are contributing to the aims of the Authority and prioritised within the capacity of the Service. Improved measurement of outcomes of initiatives and targeting will assist this process. (Para 4.2)

14 In time, the use of support staff to compliment service delivery of community fire safety should be considered. In particular, the use of Council Staff secondees (Section 1.5 refers). (Para 4.4)

Section 5 - Fire Safety Issues

15 The use of suitably trained operational crews for fire safety inspections should be considered. (Para 5.1)

Section 6 - Heads of Agreement

16 A needs analysis of appliance availability should be conducted before the application of pre-planned overtime. (Para 6.1)

17 The good policy progress achieved by the management team on mixed crewing, the use of secondary employment contracts and establishment figures should be reported to the Fire Authority and implemented. (Para 6.3)

18 Every effort should be made, when reviewing the working routines for wholetime operational staff, to release prime time (day shifts and evenings) for fire safety duties and thereby maximising time available on nightshifts for other work whilst having due regard for staff welfare. (Para 6.5)

19 It is recognised that Fife Fire and Rescue Service operate a number of flexible staffing and local recruitment initiatives to meet staffing challenges in this difficult area of retained/part time availability. However, it may wish to further develop on the arrangements being made to encourage wholetime staff to undertake, where appropriate, retained/part time duties in their communities by having the current draft contract arrangements approved by the Fire Authority. (Para 6.6)

Section 7 - Diversity and Equality Issues

20 Positive Action initiatives should be developed for under-represented groups, particularly for members of the minority ethnic communities. This should be done in partnership with those members of the Multi-Faith initiative who represent communities that are hard to reach. (Para 7.4)

21 Work should be undertaken in order that the Service can achieve the "Double Tick" symbol for showing good practice in disability. (Para 7.6)

22 Training in race awareness issues should also be undertaken with front line staff to comply with the requirements of the Race Relations (Amendment) Act 2000. (Para 7.8)

23 A closer inspection of ownership and progression of the duties of the Race Relations (Amendment) Act 2000 should be undertaken immediately. A detailed look at the action plan and responsibilities needs to take place and staff responsible for its progression should meet very soon to issue progress reports. Equality Impact Assessments of policies and functions need to be undertaken and the results made available to senior managers and for public scrutiny. (Para 7.8)

24 A training needs analysis of managers' skills and awareness of dealing with bullying and harassment issues should be undertaken and training provisions made to close any identified gap. In addition to this, discussions should take place with the Lead Authority with a view to releasing funding for training in this area as well as general equality and diversity training. (Para 7.9)

Section 8 - Health and Safety

25 It is recommended that the Service reviews the structure and functioning of the safety reference. It may wish to use the facilities of the CFOA/ ROSPA external Auditors group to assist in this process. (Para 8.2)

26 The Fire Authority should ensure that the current application procedure for staff to undertake secondary employment does not place the Authority at unnecessary or unreasonable risk. (Para 8.3)

Section 9 - Information/Communications

27 The current efforts to communicate with all staff should be maintained and improved upon wherever possible. (Para 9.1)

28 Increasing staff awareness of the benefits that New Dimensions equipment is bringing to the Service and the community should form part of the information/communications flow. (Para 9.2)

Section 10 - Personnel Attendance Levels

29 It is recommended that the Service considers rolling out the 'Contribution Management' initiative to all levels and all departments. (Para 10.3)

30 It is recommended that the Service review its Ridership Factor in relation to staff absence. (Para 10.4)

Section 11 - Freedom of Information Act

31 A comprehensive review of the existing filing system across the Service should be undertaken. (Para 11.2)

32 Resource requirements for this whole area of work should be monitored by the management team. (Para 11.3)

Section 12 - Information Technology and Data/Information Capture

33 In order to ensure effective capture of data and information, a strategy for a central unit should be pursued along with timescales for implementation supported by a strategic lead from senior managers and the Council. (Para 12.3)

Section 13 - Funding

34 The Fire Authority should take all possible steps to bridge the historic funding gap in the incremental manner set out in the draft business plan 2005/06. (Para 13.1)

SECTION 1

1. The Strategic Management of the Service

1.1 Reporting on the last inspection of the Service, my predecessor was optimistic about the new management team which the Fire Authority had selected to lead and manage the Service. This optimism was not misplaced. Without doubt this team have made great efforts to improve the inclusiveness and the culture of the Service in addition to further improving the strategic relationships with all other sections of the Council and other major agencies/organisations.

1.2 A number of dynamics have recently challenged this team, not least, the long running national dispute; the success of the Deputy Firemaster in securing the Brigade Command Course whilst being both a personal and corporate achievement of merit, has meant that due to the long duration of the course, the Service has not fully enjoyed the early benefits of his appointment; and now the challenge of guiding the Fire Authority towards the implementation of the modernising agenda.

1.3 The Firemaster, his team and all other members of staff have worked extremely hard in an effort to achieve all relevant milestones and, throughout, have been supported by Fife Council's Community Safety Committee. More assistance than ever is given by the corporate body of Fife Council.

1.4 In order to deliver results on the host of strategic and service issues facing the Authority, it has been necessary to establish a raft of project teams, review groups and other initiatives. All staff are working tirelessly and enthusiastically to support these areas. The timing is now such that this work has to be examined and prioritised in order for results and benefits to be achieved.

1.5 The Service has recently benefited from seconded staff being transferred from the Council into the Fire and Rescue Service. The early benefits of this arrangement are obvious. During the inspection the Director of Finance for the Council indicated that further utilisation of this opportunity should be investigated without direct cost to the Service. Such an opportunity will greatly assist with the many areas of work which need to be addressed or finalised and will, of course, overcome some of the historical budget restraints the Service has to operate within. This initiative should have both strategic and tactical benefits to the Service.

RECOMMENDATIONS

1 As a matter of urgency the number of initiatives, projects and reviews should be examined and prioritised wherever possible with a view to aborting or removing any area which does not directly improve service delivery.

2 Full opportunity should be taken to investigate the secondment of appropriate staff from the Council into the Fire and Rescue Service without direct impact upon the Service's budget.

SECTION 2

2. Integrated Risk Management Planning (IRMP)

2.1 In April 2005 the Scottish Executive will remove the recommended standards of fire cover which are predominantly property risk-based and allow Fire Authorities to introduce IRMP. This will allow Fire and Rescue Services to reduce wasteful calls upon resources, e.g. when responding to hoax calls or automatic fire alarms etc. and to maximise staff time for Community Fire Safety, training etc. The overall aim is to reduce fire fatalities, serious injuries and damage to property.

2.2 Fife Fire and Rescue Service have recently been highlighted by Audit Scotland as an example of "good practice" in terms of its Geographical Information System which is a major component of the IRMP database. The achievement in this area is outstanding. However, it is essential that this data, along with the Fire Services Emergency Cover model (FSEC), coupled with historical data and professional judgement, is now utilised to offer alternative methods of service delivery and to minimise wasteful use of resources.

The staff skill sets that have produced the databases to date are outstanding and they deserve credit for their work. It is perhaps timely to examine whether a different skills set may be required to provide strategic direction and annual action plans for the Fire Authority's approval. Should a new or additional skills set be required it will still be necessary to maintain the database in a dynamic manner.

2.3 During the inspection it became clear that the Service is working to a draft 5-year programme of modernisation. This draft programme has been presented to the Fire Authority for consideration and initial feedback.

The draft programme appears to assume that reviews of, and possible alternatives to, operational response actions (such as those to automatic fire alarms) will not be undertaken until April 2005 with possible implementation in 2006.

If correct, this draft programme is both disappointing and concerning. Disappointing in that the Authority has sufficient historical data available to them to allow the Firemaster to make recommendations based on professional judgement and evidence for a flexible operational response based on risk assessment. Concerning because the draft programme will preclude the Authority from taking advantage of freeing up resources for more productive work such as Community Fire Safety, training etc.

2.4 Whilst the Authority's approach to IRMP represents a considered and planned approach to change, it has sufficient evidence available now to allow full advantage to be taken of the removal of the Recommended Standards of Fire Cover in April 2005 in a manner that sustains or improves public safety, staff safety and achieves Best Value.

2.5 The Authority's draft IRMP, under the section entitled "Risk to Firefighters and Fire Engine Crewing Levels" appears to place considerable reliance upon both the Home Office document "Out of the Line of Fire" (1998) and the Fire Brigade Union's document "Integrated Risk Management" (2004). Whilst both documents are useful in terms of background and reference material they are not suitable to be used as absolutes in terms of task analysis. Failure to consider incident experiences and, in particular, multi-tasking will simply direct the Fire Authority towards a status quo position on operational deployment.

2.6 The long running dispute which the Service has endured was ended with agreement on both sides relating to appropriate and necessary work being undertaken during nightshifts and on public holidays. In order that crew, watch and station commanders can utilise this flexibility (in a responsible manner) it is essential they have authority to do so. Inclusion in the IRMP of the "Agreement" will be of considerable assistance to managers who need empowerment to deliver safer communities, safer staff and achieve best value.

2.7 At the time of inspection, the Service is clearly still in the early stages of establishing a deployment strategy for urban search and rescue capacity. However, a draft paper has been prepared for the management team to enable them to consider a number of options on how best to enhance the current deployment arrangements of specialist rescue and support functions in Fife.

RECOMMENDATIONS

3 Without detriment to the ongoing need for a dynamic database, urgent consideration should be given to the skills set required to create alternative proposals for service delivery which utilise not only the database but also FSEC and professional judgement supported by underpinning evidence. Such consideration will lead to a reduction in the wasteful use of resources, e.g. operational response to automatic fire alarms etc.

4 The Fire Authority's draft 5-year programme should be urgently reviewed with a view to achieving an early introduction of call reduction measures, risk-based operational response, more productive time for training and development and, most of all, greater use of operational crews for fire safety duties. This can be achieved utilising historic data, professional judgement and underpinning evidence.

5 When considering task analysis for crews attending operational incidents, incident experience and the reality of multi-tasking should be taken into account.

6 The IRMP document should contain a reference to the agreement appertaining to appropriate/necessary working on nightshifts and public holidays.

7 It is accepted that the arrangements for deployment of urban search and rescue resources are still at the conceptual stage in Fife. Much depends on establishing an appropriate deployment strategy. However, this is inextricably linked with a review of the Service's existing specialist rescue arrangements. It is noted that to enable this to progress, the management team will have to consider these issues across a number of activity areas including IRMP as well as the current review of new dimension deployment arrangements being undertaken by the Scottish Fire Inspectorate and CFOA (Scotland). (Para 2.7)

SECTION 3

3. Integrated Personal Development System (IPDS)

3.1 An implementation strategy has been established, supported by an appropriate training and development programme for the delivery of decontamination procedures into the Service. These arrangements appear to be well advanced and training and awareness amongst the staff sampled indicated a satisfactory understanding of these arrangements.

The Service has actively participated in multi-service exercises utilising this equipment to test capability, competence and procedures. The annual exercise programme, established within the local emergency co-ordinating group which has all the key players on board, will continue to provide a platform to test and maintain multi-agency decontamination arrangements within Fife.

3.2 It is very clear that staff involved in this area are working very hard to deliver the Service's needs against a backdrop of awaited national direction on rank to role and resource demand issues. The Service is to be commended on the level of support it has given to the work being undertaken nationally on IPDS through secondments and officers working on various forums. The Service is well advanced in its preparations for fully deploying IPDS.

3.3 The training arrangements for the recently received urban search and rescue equipment are at an early stage and has been interrupted by the national industrial dispute. The opportunity is now available for increased multi-agency training in this vital area and other associated issues.

3.4 The forthcoming removal of the recommended standards of fire cover will provide the Service with greater flexibility for the use of crews for all forms of combined and multi-agency exercises. This flexibility should be built into the Fire Authority's IRMP.

3.5 Fife Fire and Rescue Service have realigned four posts in IT, Human Resources, Property and Performance Management which were previously uniformed into support staff posts. This has enabled one sub-officer position to be redirected and also to redistribute more relevant references to the other uniformed positions.

3.6 Presently the Service has not developed any specific plans for wider use across roles for retained/part time and support staff although this will be considered in accordance with the Service's IRMP.

3.7 The training reference is particularly impressive in terms of direction and hard work by section staff. Incident Command is well developed and embedded into the Service's operational procedures.

3.8 Realistic multi-pump training exercises are being created, although this is done within a flexible system that the current staff feel needs to be more structured. However, the Service is actively addressing this issue.

3.9 New Dimensions training is ongoing at those stations that have ND equipment. As might be expected, full integration of New Dimension and Civil Resilience training is not yet at the level that would be wished given the recent industrial dispute. The Service would be expected to begin to develop this issue over the next twelve months.

RECOMMENDATIONS

8 It is recommended that the Service looks to expand on its training and exercise programme to involve the deployment of mass decontamination and urban search and rescue facilities provided by the Scottish Major Incident Unit in neighbouring Brigades to test mutual aid arrangements and validate planning assumptions.

9 It is recommended that the Service examines what, if any, flexibility may arise from the forthcoming removal of the recommended standards of Fire Cover in terms of greater availability for training.

10 The Service should further consider all staffing options across its service delivery to identify any opportunities to further integrate retained/part time and support staff on a role basis rather than the previous traditional method.

11 Training on New Dimensions capabilities should be developed over the coming months.

SECTION 4

4. Community Fire Safety and The Local Government (Scotland) Act 2003

4.1 The Service is already well established as a major partner in community planning and community fire safety. The Head of the Community Safety Department, in anticipation of the forthcoming statutory duties contained in the draft Fire (Scotland) Bill, has provided an options paper to the senior management team to consider resource impact upon the Service. This has yet to be considered.

4.2 The Service has an extensive number of partnership initiatives across the Authority's area, and whilst this is most commendable, it is by its very nature resource intensive. Staff are extremely motivated and committed towards these initiatives and in several areas are the lead partner. Whilst not wishing to dilute any enthusiasm or impact of this work, it is timely to evaluate the benefits of all partnerships with a view to ensuring they contribute to the overall aims of the Authority and are within the capacity of the Service's resources.

4.3 The Service is considering the use of improved measurement of outcomes to determine the success or otherwise of safety initiatives. This is to be commended and will also assist in ensuring that resources are targeted in the areas of greatest risk.

4.4 The Service is fully engaged with operational crews in the delivery of community fire safety and encourage partnership working at the point of service delivery. Once again this is commendable and clearly demonstrates Best Value. At present, the use of dedicated support staff to compliment operational crews delivering the community safety message is not utilised within the Service. However, this will be considered in the early period of IRMP and could, of course, be a possible area of work for secondment from the Council (Section 1.5 refers).

RECOMMENDATIONS

12 The management team should urgently consider the options paper for community safety provided by the Head of Department in preparation for the forthcoming statutory duty of community fire safety.

13 All community safety initiatives should be evaluated to ensure they are contributing to the aims of the Authority and prioritised within the capacity of the Service. Improved measurement of outcomes of initiatives and targeting will assist this process.

14 In time, the use of support staff to compliment service delivery of community fire safety should be considered. In particular, the use of Council Staff secondees (Section 1.5 refers).

SECTION 5

5. Fire Safety Issues

5.1 The Service is well placed to accommodate the forthcoming statutory duty of becoming the enforcing authority for fire safety. The sustained capacity and competency of staff in this specialist area is once again commendable. In keeping with the resource options paper for delivering community fire safety, the Service may wish to consider the use of operational crews for appropriate fire safety inspections subject to the necessary training.

RECOMMENDATION

15 The use of suitably trained operational crews for fire safety inspections should be considered.

SECTION 6

6. Heads of Agreement

6.1 The recent long-running dispute in the Service was ended with the joint signing of a document entitled "Heads of Agreement". This agreement allows for much greater flexibility in terms of working practices than the Service has hitherto enjoyed.

One of these flexibilities is the use of pre-planned overtime which the Authority now has a policy for, and is able to implement at this time.

Contained in the Authority's draft Business Plan 2004/05 to 2007/08 is the intention to utilise pre-planned overtime to maintain staffing levels on fire appliances when the deficiency is due to sickness. Based on previous years absence levels 150,000 per annum would be required for this area in the revenue budget. At present only 60,000 has been earmarked in the 2004/05 budget for overtime. As part of the budget setting process for 2005/2006 the Service will explore the scope of extending this budget.

It is essential that, before simply having a blanket facility for maintaining crewing levels and maintaining the availability of all fire appliances, an examination of needs has been conducted. Many fire appliances, particularly on two pump stations, are an historical provision arising from the recommended standards of fire cover. These recommended standards will no longer exist after March 2005 and, therefore, a needs analysis is essential.

6.2 Consideration should also be given to improved absence management in the Service, especially in the area of sickness absence which is referred to later in this report.

6.3 The management team have made good progress in terms of policies for mixed crewing arrangements and the use of secondary employment contracts for wholetime staff wishing to undertake retained/part-time duties. This policy should now be reported to the Fire Authority and implemented.

6.4 Once again, the management team have made good progress on reviewing the wholetime establishment figures and have identified opportunities for re-deploying staff into vital areas of service delivery, e.g. Community Fire Safety etc. They have also identified opportunities to reduce the establishment figures. This good progress should be reported to the Fire Authority for early action.

6.5 In order for operational crews to undertake greater fire safety duties, it will be essential to maximise the productivity of working hours whilst having due regard to staff welfare. The Service is in the progress of reviewing working routines for wholetime operational staff and it is essential that the emphasis is upon releasing staff time during the daytime and evenings for fire safety duties and thereby utilising reasonable time periods on nightshift for training, maintenance, testing and cleaning of equipment.

6.6 Fife Fire and Rescue Service have particular areas where staffing shortages impacts on service delivery. The Service has utilised a range of options to meet these challenges, e.g. extending the current turnout time and dual running by some retained/part-time staff who live and work in different retained/part-time areas. Currently the Service has drafted a wholetime/retained/part-time contract and contacted all wholetime staff seeking applications for these posts.

RECOMMENDATIONS

16 A needs analysis of appliance availability should be conducted before the application of pre-planned overtime.

17 The good policy progress achieved by the management team on mixed crewing, the use of secondary employment contracts and establishment figures should be reported to the Fire Authority and implemented.

18 Every effort should be made when reviewing the working routines for wholetime operational staff to release prime time (day shifts and evenings) for fire safety duties and thereby maximising time available on nightshifts for other work whilst having due regard for staff welfare.

19 It is recognised that Fife Fire and Rescue Service operate a number of flexible staffing and local recruitment initiatives to meet staffing challenges in this difficult area of retained/part time availability. However, it may wish to further develop on the arrangements being made to encourage wholetime staff to undertake, where appropriate, retained/part-time duties in their communities by having the current draft contract arrangements approved by the Fire Authority.

SECTION 7

7. Diversity and Equality Issues

7.1 Fife Fire and Rescue Service has done much to take forward the issues of equality and diversity within the workplace. A great deal has been achieved despite the lack of a full time equality professional employed by the Service. However, the secondment of a Human Resource professional from Fife Council is to be welcomed and will assist greatly in taking forward the various equality and diversity projects.

7.2 A number of initiatives have been undertaken in training and awareness raising of staff on diversity issues with outside professionals being contracted to carry out some of this work. The current e-learning module developed by the Scottish Fire Services College is a requirement for all watch commanders and it is soon to be rolled out to all staff. Staff training and awareness has moved on considerably despite restrictive budget constraints.

7.3 Fife Fire and Rescue Service has been particularly proactive in developing partnerships to assist in education and the development of diversity within the workplace. One particular partnership worthy of note is the development of the Fife Multi-Faith Group which the Service has been the lead agency in developing. This demonstrates innovative and creative thinking and a commitment to fairness and equality issues. This partnership will allow the Service closer access to the minority communities in Fife and assist with future recruitment, education and learning for staff as well as helping to improve appropriate service delivery to those communities.

7.4 With regard to recruitment of underrepresented groups, the Service has not been particularly successful in attracting members of minority ethnic communities. A closer inspection of the Positive Action initiatives shows that some improvements need to take place. However, as previously mentioned, the Multi-Faith initiative will assist in moving this forward.

7.5 Anecdotal evidence has been provided to show that attitudes to fairness, equality and diversity are changing. Like all other Scottish Fire Services, Fife is about to undertake a cultural audit of staff and initial evidence will be obtained. However, there is no reason to believe that, given the openness and willingness of the Senior Managers in this area, change is not taking place.

7.6 The Service has undertaken some good preparatory work prior to the introduction of the requirements of the Disability Discrimination Act (DDA). The development of a DDA Review Group and the introduction of new questions into the medical questionnaire are all good initiatives. The Service has not yet achieved the "Double Tick" symbol standard. However, the Human Resource manager has indicated an intention to take this forward in the next few months. This should be achieved quite quickly given the work that has already been undertaken.

7.7 Like all other Scottish Fire Services, Fife is awaiting direction from ODPM on the "point of entry" tests. However, a common sense approach is being taken in the absence of such guidance and there is no reason to believe that the systems and checks put in place already will not be sufficient in the meantime.

7.8 On the requirements of the Race Relations (Amendment) Act 2000, The Service's Action Plan is embedded within Fife Council's Race Equality Scheme. This is an area which would benefit from more attention. There is much work still to be done here. There is no evidence of the Service undertaking Equality Impact Assessments for new or existing policies. Senior managers should look at ownership of this area of work and have a clear timetable for continual audit and update.

7.9 The Service has faced a number of challenges in the fairness and equality arena since the last inspection and has attempted to tackle them appropriately. However, there is still much to be achieved in terms of training and awareness raising among managers, with particular reference to claims of bullying and harassment. The Service recently invited a Diversity Specialist to conduct interviews with female firefighters regarding their experiences. A report has been issued and recommendations made. A training needs assessment should be undertaken to identify gaps in senior managers' ability to deal with bullying and harassment issues effectively, particularly in relation to gender.

RECOMMENDATIONS

20 Positive Action initiatives should be developed for under-represented groups, particularly for members of the minority ethnic communities. This should be done in partnership with those members of the Multi-Faith initiative who represent communities that are hard to reach.

21 Work should be undertaken in order that the Service can achieve the "Double Tick" symbol for showing good practice in disability.

22 Training in race awareness issues should also be undertaken with front line staff to comply with the requirements of the Race Relations (Amendment) Act 2000.

23 A closer inspection of ownership and progression of the duties of the Race Relations (Amendment) Act 2000 should be undertaken immediately. A detailed look at the action plan and responsibilities needs to take place and staff responsible for its progression should meet very soon to issue progress reports. Equality Impact Assessments of policies and functions need to be undertaken and the results made available to senior managers and for public scrutiny.

24 A training needs analysis of managers' skills and awareness of dealing with bullying and harassment issues should be undertaken and training provisions made to close any identified gap. In addition to this, discussions should take place with the Lead Authority with a view to releasing funding for training in this area as well as general equality and diversity training. Training in race awareness issues should also be undertaken with front line staff to comply with the requirements of the Race Relations (Amendment) Act 2000.

SECTION 8

8. Health and Safety

8.1 No Formal HSE visit has taken place since the last report. Several informal visits have taken place at the invitation of the Service to look at specific matters. The Service appears, therefore, to have a professional relationship with its local HSE inspectors.

8.2 There was no substantial evidence offered of how the Service Safety Officer was actively managing the issue of safety other than by the collection and collation of statistics. It was apparent that this reference is in danger of becoming overly dependent on a single uniformed officer. The Service is currently examining utilising its ADOs, who are all NEBOSH qualified, as Accident Investigation officers having provided formal training using an external consultant. This is in response to an historical reluctance from officers to become involved in such matters, believing it to be the remit of the Service Safety Officer.

8.3 In order to ensure the Fire Authority does not carry an unnecessary risk in terms of secondary employment undertaken by staff, the written procedure on such matters, last reviewed in December 2000, should be revitalised. Consideration should be given to a section whereby the secondary employer must endorse the member of staff's application to accept accident/injury/illness liability. In the case of self-employment this should be covered by appropriate insurance arrangements.

RECOMMENDATIONS

25 It is recommended that the Service reviews the structure and functioning of the safety reference. It may wish to use the facilities of the CFOA ROSPA external Auditors group to assist in this process.

26 The Fire Authority should ensure that the current application for staff to undertake secondary employment does not place the Authority at unnecessary or unreasonable risk.

SECTION 9

9. Information/Communications

9.1 A number of visits to fire stations and departments took place during the inspection. Overall, staff appreciated the efforts made by the Service to consult them and generally keep them informed of progress. However, as ever, they felt it could be improved.

9.2 On fire stations, staff were generally aware of the operational benefits of the recent equipment issued by the Scottish Executive for New Dimensions. However, they were less aware of the day to day enhancement this equipment is bringing to the protection of firefighters and the community.

9.3 The opportunity was taken to meet service trade unions and whilst only the Fire Brigades' Union took advantage of the opportunity, it was nevertheless worthwhile as they indicated that, despite a difficult period over the national dispute, they were generally satisfied with the level of engagement both with the Service management team and the Fire Authority. The opportunity was also taken to expand on the duty placed upon the Service management team and the Fire Authority to consult trade unions but not always with the outcome of agreement, no matter how desirable it may be.

RECOMMENDATIONS

27 The current efforts to communicate with all staff should be maintained and improved upon wherever possible.

28 Increasing staff awareness of the benefits that New Dimensions equipment is bringing to the Service and the community should form part of the information/communications flow.

SECTION 10

10. Personnel Attendance Levels

10.1 Some very good work is ongoing in an effort to modernise this area. A member of Fife Council has been seconded to produce a new policy on this issue. Sight of the initial draft indicates that a modern and robust system is actively being developed. Whilst the new attendance management policy is in its early stages this has, however, generated useful discussion on the issues of change and modernisation.

10.2 The Service has a good partnership agreement with a local consultant for the provision of Physiotherapy and Rehabilitation Service and has a collaboration arrangement with Lothian and Borders Fire Brigade for the provision of counselling for Post Traumatic Stress Disorder (PTSD). The Service is also currently examining a proposal to create a support group for staff with alcohol related problems between itself and the two other Services with whom it collaborates on Occupational Health issues.

10.3 The Service has adopted a Fife Council Human Resources Policy known as 'Contribution Management - A Good Practice Guide'. Whilst it is part of a performance management and improvement strategy, such processes are known to improve attendance levels through improved staff motivation, commitment and involvement. However, the policy is currently only in use at senior officer level.

10.4 It was disappointing to note that the Ridership Factor has still to be reviewed. It was stated that this had been considered but due to the number of personnel on long term sickness, no actual benefit would accrue from any revision at this time.

RECOMMENDATIONS

29 It is recommended that the Service considers rolling out the 'Contribution Management' initiative to all levels and all departments.

30 It is recommended that the Service review its Ridership Factor in relation to staff absence.

SECTION 11

11. Freedom of Information Act

11.1 Fife Fire and Rescue Service has a formal procedure in place for handling both complaints and letters of appreciation and, on the evidence provided, the level of complaints is low, with the Service handling four during the period in question. Examination of the examples provided a clear and concise audit trail on the outcome of each investigation and the feedback to the complainant.

11.2 Whilst the Service has recognised the implications of the Freedom of Information Act and relevant draft procedures have been developed, it was indicated by the staff interviewed that a comprehensive review of existing filing systems for each tier of the Service's departments needs to be completed.

11.3 It was also noted that the potential for the post of a records manager has been identified but due to other pressures had not been progressed at this time. However, it will be necessary for the management team to monitor the resource and staffing requirements to manage holistically all aspects of this work.

RECOMMENDATIONS

31 A comprehensive review of the existing filing system across the Service should be undertaken.

32 Resource requirements for this whole area of work should be monitored by the management team.

SECTION 12

12. Information Technology and Data/Information Capture

12.1 The Service is about to replace much of their ageing server system and cabling, which is to be welcomed. This, coupled with the appointment of an IT manager, will allow the Service to progress towards an efficient level of IT and its accompanying support.

12.2 The Service now has a clear IT strategy with all stations and departments able to access the intranet and the internet. In the near future all staff will have e-mail addresses in conjunction with the Scottish Fire Services College e-learning programmes.

12.3 As Fire and Rescue Services begin to implement IRMP (April 2005), the need to acquire even broader and shared data bases will take on greater importance. The performance of the Service in every area will also create a need to ensure that data, along with other forms of information, is captured (preferably at a central point).

12.4 Fife is involved with the creation of a data information collection working group and have liaised with Grampian Fire and Rescue Services IT manager on this issue. It is essential that this work receives strategic support and direction within the management team and the Authority in order that data and information is not allowed to be fragmented throughout the organisation resulting in duplication of work.

RECOMMENDATION

33 In order to ensure effective capture of data and information, a strategy for a central unit should be pursued, along with timescales for implementation, supported by a strategic lead from senior managers and the Authority.

SECTION 13

13. Funding

13.1 Historically, the Service has operated at a revenue funding level significantly less than the GAE allocation. The Service is currently operating at 1.2 million less than the GAE figure. Whilst much has been written and debated about this issue, it is essential that the Fire Authority provide adequate funding to sustain and improve service delivery.

13.2 The draft Business Plan 2005/06 which is due to go before the Fire Authority in the near future, contains options to gradually overcome the historic shortfall in an incremental manner whilst being mindful of Best Value. This opportunity is most welcome and should be pursued.

13.3 During the inspection discussions with the Authority's Finance Section highlighted the benefits currently applied to the Service. In particular, unlike other Authority departments, the Service has not been affected by the initial requirement to find efficiency savings of approximately 1.5% for this current year and will be excluded in the financial year 2005/06. This decision is most welcome and coupled with incremental proposals on revenue funding will bring a stability to the Service.

RECOMMENDATION

34 The Fire Authority should take all possible steps to bridge the historic funding gap in the incremental manner set out in the draft business plan 2005/06.