Agenda item

The Assistant Chief Fire Officer presented the report.

 

At the last meeting Members authorised the Service to begin consultation on proposed changes to response arrangements within Lancashire as part of an Emergency Cover Review (ECR) which would span 2023 to 2026. The key proposals for consultation had a clear link to, and underpinned the values set out the in the Community Risk Management Plan.  These proposals included:

 

a)    The introduction (subject to relevant negotiations with Trade Unions) of a new duty system, Flexible Whole-Time (FWT), to replace the Day Crewing Plus (DCP) duty system at several fire stations, whilst introducing Flexible Day Crewing (FDC) at two stations;

b)    The introduction of a Dynamic Cover Software package to improve the efficiency and effectiveness of how we position our resources across Lancashire during periods of high incident and resource demand;

c)    Introducing new and enhanced vehicles to support our response to incidents linked to climate change (i.e. Flooding and Wildfire), as well as Flood Water Incident Managers to support flooding incidents;

d)    The introduction of the Service’s very first 45m Aerial Ladder Platform (ALP), whilst investing in 2 further Water Towers to enhance our response to the expanding high rise, built environment, and increasing risk of fire in high rise buildings. This was to ensure a holistic view of emergency cover was included within the consultation, as previous decisions had been taken by the Authority to approve procurement of these three vehicles;

e)    Exploring opportunities and seeking feedback on how best to broaden the role of our On-Call Firefighters to strengthen the service offered to our communities.

 

The Assistant Chief Fire Officer advised that the ambition for the ECR was to maintain 39 fire stations, 58 fire appliances and deliver the ECR with minimal impact on the Service response times and likely growth in the number of firefighter roles.

 

The consultation period spanned 12-weeks and concluded on 14October 2022.  An independent third-party organisation, Pearson Insight, was commissioned to support a public and staff consultation on behalf of LFRS to gather views on the proposals.  Their report detailed feedback received from the public, stakeholders and LFRS staff, along with specific data around the geography and demography of respondents.

 

At the start of the consultation period, draft documents were published across various online and physical platforms which all linked to an online survey.  Printed copies were shared on request and a separate dedicated consultation email address was set up to offer an alternative method of providing feedback.

 

It was acknowledged that since the consultation commenced there had been a shift in the national and global economic position. Future Government funding statements were likely to include a reduction in public sector spending, alongside increasing inflation rates and ongoing national Firefighter pay negotiations which would now require factoring into future spending and efficiencies.

 

Members had received a briefing at the recent Strategy Day and now considered the report in detail.

 

Statistical Analysis

 

The consultation yielded a really positive response with a total 1,224 responses received. This included 928 from local residents, 234 from staff and 62 responses from other stakeholders. A breakdown of responses was considered by Members (as now presented under appendices 3 and 4).

 

It was noted that strength of importance was highest for: i) meeting response standards, the time it took to reach incidents in every area of Lancashire; ii) ensuring effective and resilient crewing arrangements to deliver our service; and iii) ensuring the right equipment and technology, to be fit for the future.  Strength of importance was lower for the: i) consideration of changes in the environment and the impact of climate change on the incidents called to.

Staff and public had a similar strength of agreement for the principles outlined in the consultation.  General themes identified through the consultation included:

 

a)    Roads and parking in the context of responding to incidents;

b)    Consideration of population, demographics, housing, and how these were changing; and

c)    From a financial context, did the ECR place an emphasis on Value for Money or was it a streamlining / money saving exercise?

 

Proposals for recommendation

 

Following the analysis of consultation responses and taking into consideration the shifting financial uncertainty, refinements to some of the proposals were put forward for consideration as follows:

 

1.    Introduce more resilient and flexible crewing arrangements

 

The introduction of a Flexible Wholetime (FWT) duty system and replacing some Day Crewing Plus (DCP) stations would have a positive impact on the delivery of prevention and protection services.

 

Nationally, the Fire Brigades Union did not support DCP as a shift system. Currently, DCP was the most prominent shift system however, its resilience was impacted during major incidents, or when simultaneous incidents occurred. The upgrade of some DCP stations to FWT would provide greater resilience, effective emergency cover, and increased flexibility for individuals.

 

The following proposals are recommended to be progressed (with the Service to work with staff and trade unions to manage the change in line with staffing profiles):

 

a)     Upgrade Day Crewing Plus with a new Flexible Whole Time duty system at Morecambe, Fleetwood and Skelmersdale. The type of duty system may be dependent on whether agreement could be reached with Trade Unions, therefore LFRS would either:

 

          i.   Introduce a new FWT duty system (shift times and durations to mirror existing 2?2?4) increasing establishment on these stations to 24 members of staff, or;

         ii.   Re-introduce a variation of the traditional 2-2-4, increasing station establishments from 14 to 24.

 

b)     Bispham to remain as DCP instead of a change to FWT.

 

c)     Reduce the staffing establishment on remaining DCP stations from 14 staff to 13 staff (excluding Chorley and Bamber Bridge due to USAR requirements).  This staffing level remained more than adequate to maintain appliance availability.

 

d)     To balance staffing numbers and budgets, replace the existing 2-2-4 duty system with a new Flexible Whole Time duty system (shift times and durations to mirror existing 2-2-4) at Lancaster, Hyndburn and South Shore or reduce the staffing establishment on the existing 2-2-4 duty system to 24 should an agreement on FWT not be reached with the Trade Unions.

 

e)     Change St Anne’s and Penwortham to Flexible Day Crewed, as the risk and demand within the areas, along with modelling provided by Process Evolution, supported the proposal consulted upon. However, in response to the perceived challenges around affordability and availability of housing within 5-minute catchment areas, conduct further consultation internally with staff and Trade Unions to identify the most appropriate on-call type duty system to operate at night. Possible alternatives could include:

 

          i.   Introducing Day Crewing only, and use on-call firefighters to cover the appliances at night;

         ii.   Continuing with the proposal to introduce FDC, which would require staff working that system to live/relocate to within 5 minutes of the fire station.

 

After internal consultation, the final decision would be agreed by the Chief Fire Officer and CFA Chairman.

 

f)      An additional proposal was recommended following feedback received through the consultation for the establishment of 14 staff on FDC stations to be reduced to 13 to align and be consistent with the reduction to 13 staff on DCP stations. This would assist with balancing staffing and budgets across the Service.

 

Future review recommendations:

 

g)     Following consultation feedback around Penwortham station activity, a further review of emergency cover across the Preston area and the potential replacement of Preston fire station (in line with the capital programme) was recommended. In addition, maintaining DCP at Bispham should be further considered as part of a wider Blackpool area response review; these two reviews to be specifically analysed as part of any future review of emergency cover across Lancashire.

 

2.    Optimise emergency cover through Dynamic Cover Software

 

To introduce Dynamic Cover Software in the command support room in 2023?24 was recommended, followed by wider rollout at North West Fire Control thereafter. The Service to use this software to inform dynamic decision making of the optimum location to locate fire appliances based on current levels of risk, demand and staffing profiles, to ensure an efficient and effective deployment of resources across Lancashire.

 

3.    Strengthen our response to climate change emergencies

 

Our strategic assessment of risk identified the increasing risk of flooding and wildfires, which was already having a significant impact on homes, businesses and environments in Lancashire. As a result, a Climate Change Operational Response Plan had been produced which detailed how we were mitigating and responding to these types of incidents. The following proposals were recommended to be progressed to support our response:

 

a)    Replace 4 current ‘type B’ standard fire appliances and replace with 4 fire appliances with off road capabilities in areas at risk of wildfires and flooding. A project group would be established to develop the finer detail around how LFRS could make the best use of these vehicles through a pilot scheme;

b)    Introduce specialist Flood Water Incident Managers.

 

4.    Strengthen firefighting and rescue capabilities in high-rise and commercial buildings

 

These proposals formed part of the consultation to ensure a holistic view of emergency cover however, previous decisions had been taken by the Authority to approve procurement of three vehicles. Therefore, the following proposals were being progressed:

 

a)    Introduction of a 45m Aerial Ladder Platform, our highest reach aerial to date;

b)    Investment in two additional Water Tower appliances.

 

5.    Broaden On-Call firefighting capabilities to strengthen operational response

 

Of the 58 fire appliances in Lancashire, 32 were crewed by on-call firefighters. To ensure LFRS was getting the best value out of c.400 On-Call firefighters and to strengthen operational response and resilience, it was recommended to support broadening the capabilities of On-Call staff:

 

Examples were provided including initially expanding the skills of On-Call staff at Hyndburn and Morecambe (for Aerial Ladder Platform driving) and considering the role played by on?call staff in crewing the new water towers such as that already in place at Skelmersdale station. Further consultation would take place via the On-Call working groups in the Service to fully understand the capability, limitations, and impacts of broadening the role of On-Call firefighters aligned to the proposals within the special appliance review.

 

Summary of proposals

 

These options for change provided the best package of measures with the least impact on the Service’s ability to provide an effective county-level emergency response (overall county impact 0.1% on response performance):-

 

-       Maintain 6 Day Crewing Plus – best fit and pending future response area reviews;

 

-       Change 5 Day Crewing Plus and replace with:

 

o   3 Flexible Wholetime or 2/2/4 with 24 staff;

o   2 Flexible Day Crewed or Day Crewed only with On Call cover at night;

 

-       Change 3 existing 2-2-4 stations to Flexible Wholetime or keep 2-2-4 but with 24 staff;

 

-       Realign establishment levels on FDC stations to 13, the same as DCP;

 

-       Introduce Dynamic Cover Software;

 

-       Invest in 4 new all-wheel-drive fire appliances, replacing 4 standard type B fire appliances;

 

-       Introduce Flood Water Incident Managers;

 

-       Introduce a 45m Aerial Ladder Platform;

 

-       Invest in 2 additional Water Tower appliances;

 

-       Broaden the capabilities of On-Call Firefighters.

 

This would ensure that the Service would:

 

-       Maintain all 39 fire stations;

-       Maintain outstanding response standards and all 58 fire appliances;

-       Provide efficiency savings of c.£400k;

-       Increase the overall fire-fighter establishment by 8 and provide more flexible crewing arrangements.

 

Impact of changes on annual revenue budget

 

The original ECR proposals required an additional £214,951 committing to the budget to deliver.  Having considered the global and national challenges that the Service faces as described above, the revised proposals would take account of this, along with the feedback received from the consultation, and it sought to deliver efficiencies, not only in the way LFRS distributed its operational resources but in the way it spent public money.

 

There remained the potential need to revisit an ECR in light of future funding settlements.

 

The recommended changes to staffing establishments were in line with many other fire and rescue services as detailed within the National Fire Chiefs Council Working Patterns project (https://www.ukfrs.com/working-patterns) and helped to maintain the total number of wholetime crewed appliances across the county and our fast response performance. The challenge within Lancashire was to ensure that where there was a reduction in staffing numbers at some stations, this was effectively managed so as to minimise overtime implications.

 

The Fire Brigades Union (FBU) still sought the withdrawal of the DCP system within Lancashire. As part of the FBU’s response to this consultation, the FBU welcome the reduction of DCP stations in LFRS. There had been some significant challenge through the consultation period around the increasing cost of living, mainly cited by staff at DCP stations that were proposed to change duty system and subsequently lose the additional 32% allowance received. Those staff that were permanently contracted to the DCP duty system would have the option to continue working it, albeit potentially at a different location.

 

The wholetime staffing establishment proposed would support the efficient and effective deployment of wholetime appliances across the county. Continuing to maintain staffing levels of 14 on all remaining DCP and FDC stations and 28 at each of the six wholetime (single pump) stations would require an additional £1.7million of investment per annum.

 

Through a reduction of the staffing establishment to 24 at the existing single (wholetime) pump stations (Lancaster, South Shore and Hyndburn); implementing a staffing establishment of 24 at Morecambe, Fleetwood and Skelmersdale (regardless of whether it was traditional 2-2-4 or FWT); reducing the staffing establishment at the remaining DCP stations, and the 4 FDC stations from 14 to 13; along with the options for change as described above (reducing the proposed number of FWT stations by one and maintaining DCP at Bispham), would not only maintain the excellent response standards LFRS delivered, but it would generate efficiencies of around £400,000 per annum.

 

Impact of changes on staffing establishment

 

The proposals that were presented to Planning Committee in July, and subsequently went to consultation, resulted in an expansion of the staffing establishment by 25 Firefighter posts.  The changes of six DCP stations, to be replaced by four FWT and two FDC stations was the main contributing factor leading to an increase in Firefighter post across LFRS.

 

The consultation feedback had led to a review of some of the proposals and the revised proposals resulted in a decrease in the number of FWT stations (Bispham to remain as DCP requiring 13 FTE, not 24 if upgraded to wholetime).  The result of this, should the revised proposal be accepted, was an overall increase in Wholetime Firefighter posts of 8 across LFRS.

 

In response to a question from County Councillor O’Toole regarding the investment in Preston Fire Station, the Assistant Chief Fire Officer advised that Preston Fire Station was the station in most need of investment.  The property was currently being maintained prudently but the Service was conscious of the need to consider the potential for a future rebuild in situ or relocation.

 

In response to a question from County Councillor O’Toole regarding whether there was much variance of opinion between staff and Trade Unions, the Assistant Chief Fire Officer advised that there had been mixed views.  The option to work back-to-back shifts had been identified as attractive in consultation with a selection of staff however, consultation with Trade Unions identified concern related to the move to 12-hour shifts which resulted in the proposal being amended to the same as the 2?2?4 duty system which was 8am ? 6pm (dayshift) and 6pm ? 8am (nightshift).  The Service aimed to offer family friendly duty systems (in agreement with the Trade Unions) which provided options for staff to choose a duty system that worked for them. He confirmed that the proposed FWT system would provide a different duty system which would allow staff to self-roster.

 

In response to a question from County Councillor S Rigby regarding efficiencies identified in the report the Assistant Chief Fire Officer advised the effect of the recommended changes to staffing levels set out in the refined proposals, resulted in a net saving of £400k per annum which included the proposed 8 additional posts. 

 

County Councillor Rigby queried the timing of the ECR given the current financial uncertainties and the potential to find further efficiencies in the short-term.  In response, the Assistant Chief Fire Officer confirmed that one of the drivers for the ECR was a requirement to move away from the current DCP duty system.  The potential to move staff on the DCP system back to the 2?2?4 system would require a significant level of investment back into the Service which was unaffordable.  Following consultation, the refinements to the proposals gave favourable outcomes, mindful that the economic landscape had changed significantly over the period of the consultation.  It was important to put the Service in the best position going forwards; making changes in the short-term that created savings, optimised cover and increased firefighter headcount.  It was recognised however, that over the medium term there may be a requirement for a future ECR.

 

County Councillor Shedwick found the briefing at the Strategy Group assisted understanding.  He was really pleased to see the results of the consultation and of the proposal to broaden on-call firefighting capabilities.

 

In response to a question raised by Councillor Hugo regarding the Human Resources and Financial Implications outlined in the report, the Assistant Chief Fire Officer confirmed that training may need to be tailored but any additional costs were likely to be negligible and the impact on the HR department would be managed within existing working practices.

 

Councillor Hugo queried whether the need to live close to the fire station in St Annes should be included in the Equality Impact Assessment given the potential to exclude ethnic minority groups due to the demographics of the area.   The Head of Human Resources advised that recruiting from a specific demographic did have a potential negative impact on diversity across the whole Service. This would be considered once a final decision was taken regarding the duty system at St Annes.

 

County Councillor Hennessy referred to the second paragraph on page 16 of the agenda pack regarding a comment in the report that the Fire Brigades Union (FBU) did not support the DCP shift system.  She would have appreciated it if the report included a reason; which she believed was due to the number of hours worked on the system.  County Councillor O’Toole advised that at the time the DCP shift system was implemented, (as Chairman at the time together with County Councillor Shedwick as Vice-Chairman) they had met with local FBU representatives and had come to an agreement.  Although nationally the FBU were opposed to the system, many Fire Authorities adopted it and quite a lot of staff liked it because it provided a degree of flexibility.

 

In relation to section a) on page 16 of the agenda pack County Councillor Hennessy queried how changes around the duty system would be communicated to residents in Morecambe, Fleetwood and Skelmersdale.  In response, the Assistant Chief Fire Officer advised that delivery of all the ECR proposals would be accompanied by a comprehensive communications strategy.  Changes at these stations represented an upgrade in provision through increasing firefighters on location and 24/7 availability.

 

In relation to section e) ii. on page 16 of the agenda pack County Councillor Hennessy queried whether the requirement to live within a catchment area meant firefighters might leave the Service.  In response, the Assistant Chief Fire Officer advised that it was recognised that there were some concerns however, the options identified would be worked through in consultation with staff to understand their individual preferences, develop solutions that would work practically, and seek to accommodate individuals’ preferences so far as could be reasonably achieved.

 

In relation to section g) on page 17 of the agenda pack County Councillor Hennessy queried whether a timeline had been identified to consider a future review.  In response, the Assistant Chief Fire Officer advised that data analysis from this ECR suggested a further ECR should include Preston and the wider Blackpool area.  A timeline had not been agreed at this time however, it was anticipated a further ECR would be needed in the next year or two depending on the financial settlement received from central government.

 

In response to a question from County Councillor Hennessy regarding a timeline for the replacement of 4 type B standard appliances with new appliances with off road capabilities (section 3. a on page 17 of the agenda pack), the Assistant Chief Fire Officer advised that, subject to approval by the Authority, the Service would look to procure 2 appliances as soon as possible.  However, it was recognised that this would take much longer than usual given the current nature of the global market.  He advised that fleet department colleagues were currently looking at options.  County Councillor O’Toole added that the Resources Committee had had several discussions recently over the significant increases in the costs of raw materials and difficulties in timely procurement.

 

In response to a question from County Councillor Hennessy requesting further details and a timeline for broadening on-call firefighting capabilities (section 5 on pages 17 and 18 of the agenda pack) the Assistant Chief Fire Officer advised that alongside this ECR a review of all special appliance assets across the Service had been undertaken (citing examples of Aerial Appliances, Breathing Apparatus Unit and Hazardous Materials Units etc).  It was recognised that not all special assets would lend themselves to broadening the capabilities of on-call firefighters however, there was scope to review current mobilising arrangements in consultation with on-call colleagues.  For example, a pilot at Hyndburn and Morecambe to train on-call staff to drive the aerial ladder platform was being proposed.  This would speed up mobilisation and give opportunities for on-call firefighters to attend more incidents.  In turn it was hoped this would maintain their interest, engagement and retention in the Service.  The Assistant Chief Fire Officer confirmed that the training costs were within existing budgets.

 

In response to a question from County Councillor Hennessy under the ‘impact of changes on the annual revenue budget’ (pages 18 and 19 of the agenda pack) regarding ensuring the reduction in staffing numbers at some stations did not increase overtime costs, the Assistant Chief Fire Officer advised that managers would be required to be proactive in their oversight and scrutiny of staff rotas.

 

RESOLVED: - that the recommendations be presented to the full Authority meeting on 19 December 2022 for consideration and approval.