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Hertfordshire Fire and Rescue Service:
Use of Resources Self Assessment 2009
Final document, submitted 5th May 2009
At Hertfordshire Fire and Rescue Service (HFRS), we welcome inspection as a key function which supports our drive for continuous improvement. We aim to deliver the best possible service to the residents of Hertfordshire. Inspection and self analysis provides the opportunity to reflect and share best practice in areas of good performance, as well as highlighting areas where improvement is required. The Service has made significant improvements in the delivery of outcomes, ensuring that Hertfordshire is a safer place to live and work.
Comprehensive Area Assessment (CAA) represents an evolution in the methodology and culture of inspections. HFRS is keen to foster this ethos, and adopt a more iterative and dialogue-based approach to assessment. The Service is keen to retain the challenge and drive for improvement that CAA offers, whilst reducing as far as possible the burden of inspection.
This self assessment document has been written in the spirit of CAA as an open and honest account of the organisation. It should be read in conjunction with the Hertfordshire County Council Use of Resources Self Assessment submission for 2009 which was submitted to the Audit Commission on 24th March. Despite being audited under CAA as an independent organisation, Hertfordshire Fire and Rescue Service (HFRS) is a department of Hertfordshire County Council (HCC) and has contributed as such towards the HCC self assessment submission. Conversely, with HCC acting as the governing body and Fire and Rescue authority, much of the evidence submitted under certain KLOEs is congruent with both submissions.
Overall HFRS feels that it is a high performing Fire and Rescue Authority providing an excellent service which demonstrates good value for money, and also demonstrates a willingness to continue to deliver efficiency savings across the Service.
Summary of Indicative Scores:
|Key Line of Enquire |Indicative Score |Commentary |
|1.1 Does the Organisation plan its finances effectively to deliver | |HFRS can demonstrate links between the Service’s priorities and the allocation of budget, and ensures a robust senior manager and |
|its strategic priorities and secure sound financial health? |3 |member challenge to the internal budget setting and priority setting processes, which extends to local partnerships. Engagement with|
| | |stakeholders through the setting of priorities is strong, and priorities are well communicated to all with a strong golden thread. |
| | |Whilst the Service has room for improvement in how it manages spending, the Service is actively improving the skills and |
| | |accountabilities to manage the service’s budget at a middle and senior management level. Constant discussions about the budget |
| | |through current and long term financial climate are ongoing between managers and staff, which provides a robust platform form which |
| | |to develop long term financial planning adjacent to HCC. |
|1.2 Does the Organisation have a sound understanding of its costs | |HFRS is a lean organisation, according to Audit Commission statistics from the ‘Rising to the Challenge’ reporting the Service to be |
|and performance and achieve efficiencies in its activities? |4 |6th most cost effective nationally, yet to be amongst the highest performing services in the country. The Service can demonstrate a |
| | |good understanding of its cost and control of costs through consistent efficiency savings found from within its lean budget. The |
| | |Service also demonstrates the appetite to make further efficiency savings through structural change, and work is ongoing to agree a |
| | |way forwards. The Service has evidenced that it is willing to make difficult or controversial decisions in order to make efficiency |
| | |savings, without affecting the quality of service delivery |
|1.3 Is the organisations financial reporting timely, reliable and | |(See HCC Use of Resources self assessment submission). Whilst the Audit Commission will be aware of issues around the timely |
|does it meet the needs of internal users, stakeholders and local |3 |publication of accounts and ongoing work around this area, HFRS continues to develop its performance in this area. The use of |
|people? | |management information is wide-spread in helping to inform decision making, and the Service makes an effort to inform the public and |
| | |other key stakeholders of performance and financial information. |
|2.1 Does the organisation commission and procure quality services | |Procurement is a real strength within the Service. Engagement with a real variety of forums and consortium allows the service to |
|and supplies tailored to local needs, to deliver sustainable |4 |‘cherry-pick’ the procurement option which offers the best value for money. The procurement process is user-centred and adopts good |
|outcomes and value for money? | |practices in whole life costing. There are strong links demonstrated between procurement and the achievement of Service priorities, |
| | |and the Service continues to evidence the use of assets towards the achievement of multi-agency and community objectives |
|2.2 Does the organisation produce relevant and reliable data and | |The Service has excellent and well-embedded systems of performance reporting to Members, Senior and middle managers, which the roll |
|information to support decision making and manage performance? |4 |out of Views will enhance. Reporting of performance is timely and against priorities outlined within the Community Safety Plan |
| | |2009/12. Data quality is good and accurate, timely and relevant data providing to a range of key stakeholders. The Service is |
| | |driving forward improvement in this area with the appointment of a new role and significant process mapping and redesign outlined, |
| | |the delivery of new systems such as Rappel to provide user-friendly and accessible information, and the implementation of a variety |
| | |of data quality checks to build on already existing processes |
|2.3 Does the organisation promote and demonstrate the principles and| |HFRS feels that it is performing highly in ensuring good governance practices are adopted. The Service can demonstrate good |
|values of good governance? |4 |relationships between Members and Senior Managers, with good member training and development in place. The direction set is clear |
| | |around both the strategic aims and ethical expectations of staff, and this is well communicated to all stakeholders. Partnership |
| | |governance is robust and demonstrates delivery at the local levels, with the strategic governance improving |
|2.4 Does the organisation manage its risks and maintain a sound | |HFRS undertakes management of corporate business risks successfully, and can demonstrate an emerging and congruent agenda of risk |
|system of internal control? |3 |management at the project level. The Service undergoes significant challenge annually through the Internal Audit process, and |
| | |continues to build upon robust processes for resilience both internally and at the partnership level. |
|3.3 Does the organisation plan, organise and develop its workforce | |HFRS feels it is performing exceptionally well under workforce planning. The Service is driving forward against the national |
|effectively to support the achievement of its strategic priorities? |4 |equalities strategy and is making significant progress in developing engagement of staff with local communities. Change management |
| | |practice is extensive and the model employed for indentifying needs and delivering training and development of staff is considered |
| | |good practice. Whilst HFRS recognises that it has some development to undertake under workforce planning, steps have been taken over|
| | |the past year to ensure that the basic data sets on workforce profile and establishment information is in place to allow for |
| | |progression in this area |
Managing Finance – How effectively does the organisation manage its finances to deliver value for money?
1.1) Does the organisation plan its finances effectively to deliver is strategic priorities and secure sound financial health?
SCORE 3: HFRS can demonstrate links between the Service’s priorities and the allocation of budget, and ensures a robust senior manager and member challenge to the internal budget setting and priority setting processes, which extends to local partnerships. Engagement with stakeholders through the setting of priorities is strong, and priorities are well communicated to all with a strong golden thread. Whilst the Service has room for improvement in how it manages spending, the Service is actively improving the skills and accountabilities to manage the service’s budget at a middle and senior management level. Constant discussions about the budget through current and long term financial climate are ongoing between managers and staff, which provides a robust platform form which to develop long term financial planning adjacent to HCC.
Integrated Financial Planning: 3
Full engagement with the HCC Strategic Compass[1] and internally via the Star Chamber processes[2] ensure that there is significant challenge role for Elected Members and all senior managers in the setting of priorities and the allocation of resources under their control. These processes ensure that resources are aligned well to service priorities and objectives, and display a strong correlation with the HCC corporate plan and financial planning cycles.
Through the modernisation process, HFRS has a strong record of using the budget process to shift resources to align with risk and targeting the most vulnerable members of the community. The Community Safety department, which co-ordinates community safety activity across the County, was largely funded by Local Public Service Agreement money that came to an end in 2008/09. Through the HCC budget process, HFRS has made a case for the allocation of additional resources from mainstream budgets to prioritise the prevention work of the Service[3]. This funding has allowed the Service to put in place several roles aimed at targeting and engaging specific sections of the community, such as the Community Engagement Officers[4] who deliver and engage across all 6 of the equality strands, and to better prioritise the medium term targeting of key risk communities. In addition the Service has allocated budget to both water training (£40k) and driver training (£36k), identified as priorities for the current financial year[5], in line with the key Service objective of ensuring the “right person in the right place at the right time”.
The ethos of targeting resources towards the most at risk is also carried through to a local level. An example of this is in Watford where local personnel have stimulated demand for home fire safety and security checks in the homes of older people in the area by working closely with local charity shops. An agreement was struck that for every home fire safety and security check obtained through charity shops, a £1 donation is made to that charity. The funding for this initiative has been sourced through the Watford Crime and Disorder Reduction Partnership (CDRP)[6] through recognition of its contribution to an array of local community priorities, and is targeted at driving down dwelling fires and crime and fear of crime among the older vulnerable population. This serves as another example of HFRS’ overall approach to working with the voluntary and community sector to use resources innovatively to deliver improved outcomes.
HFRS also has a strong record of delivering on priorities having allocated resources accordingly. A prime example of this is the ongoing implementation the 94 recommendations[7] following the investigation into the fire at Harrow Court in Stevenage which led to the death of two fire fighters and a member of the public. Significant resource was allocated to the implementation for these recommendations with ongoing quarterly monitoring of progress by the Strategic Leadership Group (SLG).
Case Study 1 – CDRP PRG Monies and meeting local community priorities
HFRS have strong links with all 10 District CDRPs, working hard to ensure that they prioritise the needs of local people and focus on the issues that affect each district. Through the local Strategic Partnership in the Three Rivers area, HFRS has secured £20,000 from the partnerships’ ‘513 Prevention Fund’ to run LiFE schemes in the area[8]. The aligning of financial resources with the LiFE project has been recognised as providing excellent value for money and achieving key priorities by partnership stakeholders, in focusing on improving outcomes for young people around the Every Child Matters themes, specifically Being Healthy, Enjoy and Achieve and Making a Positive Contribution.
The LiFE project uses the mentoring and coaching skills of Fire Service staff as positive role models to facilitate the following outcomes in targeted and referred young people:
- Adopting positive personal values.
- Taking responsibility for actions.
- Resilience.
- Problem solving
- Team working
- Anger management.
- Positive communication.
- Improved Self esteem and Confidence.
- Conflict resolution.
Referrals would be encouraged from Children’s Trust Partnership (CTP), Multi Agency Support Teams (MAST), Youth Offending Teams, Educational Support Units (ESU), Behavioural Support Officers as well as children’s services professionals on the ground. Young people would also be targeted within the Wards where the IMD issues are most prevalent.
The LiFE scheme can demonstrate a strong record in its work with young people who display criminal or anti-social tendencies. Of a sample of 33 young people involved in the scheme identified by the police being at risk of offending, 64% had not offended 12 months after their involvement on a LiFE scheme
Medium and Long Term Financial Planning: 2
As outlined in the HCC Use of Resources self assessment submission, the Council’s policy, acting on behalf of the Fire and Rescue Authority, is to plan to maintain a level of balances each year consistent with the potential financial risks that the council may encounter. For 2009/10 this was assessed at £20.1 million for HCC. Due to the current economic downturn the council is applying £10m of available reserves to support the 2009/10 budget and a further £2.7m is being applied to meet the cost of short term projects in 2009/10 – 2011/12.
HFRS has aligned itself more closely with the HCC financial planning cycles. Agreement of corporate planning guidance[9] and timescales has been adopted by HFRS, evident through the introduction of more consistent district planning process for 2009/10[10]. The Service has also recently appointed a non-uniformed assistant director for Performance and Business Support, which is a consistent role and job description shared across all the service departments of HCC[11].
HFRS has a strong track record of delivering services within a lean environment, demonstrating a well embedded and sound understanding of financial planning and appropriate allocation of resources. Comparative statistics show that HFRS, whilst in real terms has only seen a budget increase of 10% over the past ten years, has become the 6th most cost effective Service in England in 2007/08 from the 21st most cost effective FRS in 1996/7[12]. This is whilst maintaining excellent relative and absolute performance improvement (see case study 3 – HFRS: High performing and Low Cost)
HFRS embarks upon continual discussions at all levels regarding the nature of the financial climate and the drive for the Service to continue to deliver services as efficiently as possible in the medium and long term. This is through a variety of different forums engaging different audiences in an open and transparent manner. An example of this is the SLG away day in April 2008, a part of which entailed facilitated scenario planning which looked at a variety of financial scenarios the Service might face in the future[13]. This resulted in the creation of a long term vision statement, on page 45 of the Community Safety Plan 2009/12.
Engages with stakeholders: 3
The overall HCC financial planning process (see KLOE 1.1.1) rightly begins with agreement on what the council agrees are its vision and priorities in the medium and long-term. This is the element of the financial planning process where community and stakeholder involvement is key. The County Council led the development of Hertfordshire Forward’s (the countywide LSP) Sustainable Community Strategy[14] (SCS), the medium and long-term vision for the county. This underpins strategic financial planning in the authority. The Council ensured that the priorities in the SCS were determined through widespread engagement with the community and key stakeholders. Opinion Research Services ran focus groups (with members of the public who sit on the Citizen’s Panel) to capture wider views on those priorities, and specific consultation was undertaken with children and young people. All the material from these consultations was fed through, and reflected in, the final SCS.
The HFRS financial planning process also begins with the verifying of Service level strategic priorities, which demonstrate effectively the golden thread from the SCS and the HCC Corporate Plan[15]. The Community Safety Plan 2009/12 represents a step forward for HFRS from annual planning towards setting objectives for the medium term, and the planning process undertaken throughout 2008/09 consisted of significant consultation with a wide variety of stakeholders, including representation of many harder to reach communities (see case Study 2 – Community safety Plan Consultation Process). This information was fed directly into the relevant strategic planning sessions including senior managers in setting the Service’s priorities over the period[16]. The budget allocation process feeds directly from the Service’s priorities (see below), and the golden thread is strong through to district planning with public facing strategic and action plans outlining district level and local community priorities for the coming financial year[17]. As part of the consultation process all neighbouring FRS were asked to comment on the plan[18]. This was an opportunity to discuss and review cross border working and integration arrangements and to understand how any changes would impact on service delivery. In addition to the stakeholder engagement throughout setting priorities for HFRS, at a local level the Service has engaged in a number of district launches of the Community Safety Plan priorities, in the context of the multi-agency CDRP environment, to a public and political audience[19].
Case Study 2 – Community Safety Plan Consultation process
Hertfordshire Fire & Rescue Service undertook extensive consultation on its recent Community Safety Plan 2009/12. The plan sets out the Service direction and priorities for the next three years and so focusing on the medium term objectives and financial implications this will have. In developing this plan the Service looked at major drivers for the organisation, such as the National Framework document 2008/11 and the Equalities and Diversity strategy 2008/18.
The consultation process began in March 2007 and involved extensive internal and external engagement with key stakeholders including senior and middle management, representative bodies and front line staff, in addition to work commissioned through ORS to engage with residents and high risk groups. The ORS survey involved a range of forum meetings and focus groups across Hertfordshire to better understand the needs and perceptions of our communities. These meetings and focus groups where held at different locations and at different times of the day so that we were able to fully engage with the different sections of our community. All of this engagement occurred prior to the strategic decision making process, to allow feedback to inform and influence senior managers in setting the Service priorities.
In establishing the content of the draft Community Safety Plan in December 2008, the Service completed an equality impact assessment to inform its approach to gathering feedback on the plans content. As a result of this, targeted consultation was undertaken to seek the views of all six of the equalities ‘strands’ in more detail. These groups included the elderly, those with disabilities and impairments and residents from different ethnic and religious backgrounds[20]. A total of 43 organisations representing communities cover each of the 6 equalities strands, along with 40 key partner agencies were written to seeking feedback, supported by a general public consultation via Hertfordshire libraries and . Feedback on the draft was considered and informed the final iteration of the plan, which was published on the 22nd April 2009.
Managing Spending: 2
Through the robust HCC monitoring of budgets potential overspends are identified early and remedial action is put in place to deal with this at a corporate level. Major variances are contained within the reports to all management boards with commentary explaining reasons behind the variances and proposed actions. Particular attention is paid to any budget deemed to be ‘volatile’ through budget monitor reports[21].
HFRS has in place a robust financial planning process which ensures that budget is allocated according to strategic priorities. Major budget holders are invited to bid for additional resource and submit these bids to the accounts team. The bids are reviewed and decisions are made according to priority through an annual meeting chaired by the DCFO as accountable SLG F&R budget lead, involving all major budget holders. The process is discussed with the lead members for Community Safety through CFO briefings and formally agreed by SLG[22]
The management of spending, and the identification of efficiency savings has not been to the detriment of the performance or the quality of service delivery outcomes, as demonstrated by the service’s continued high relative performance[23]
Financial Governance and Leadership: 3
The centralisation of financial personnel has led to the development of awareness of budget holders of their responsibilities in ensuring robust financial planning and management at a local level. Training of all major budget holders across the Service has taken place in order to ensure that budget managers have both the right skills and awareness in order to manage the Service’s financial resources effectively. In addition, access to the SAP system allows budget holders to have access to real time information on their budgets. SLG hold budget holders to account through monthly financial monitors formally discussed by the group.
Transparency of the financial planning process is achieved through a variety of formal and informal forums in which overviews of the current financial situation and longer term financial climate is provided to staff. This is an ongoing two-way conversation, demonstrated by a series of facilitated workshops with middle managers throughout 2008/09[24]
1.2) Does the organisation have a sound understanding of its costs and performance and achieve efficiencies in its activities?
SCORE 4: HFRS is a lean organisation, according to Audit Commission statistics from the ‘Rising to the Challenge’ reporting the Service to be 6th most cost effective nationally, yet to be amongst the highest performing services in the country. The Service can demonstrate a good understanding of its cost and control of costs through consistent efficiency savings found from within its lean budget. The Service also demonstrates the appetite to make further efficiency savings through structural change, and work is ongoing to agree a way forwards. The Service has evidenced that it is willing to make difficult or controversial decisions in order to make efficiency savings, without affecting the quality of service delivery.
Understanding Costs: 4
HFRS is a low cost fire service, providing an efficient and valuable service which represents excellent cost effectiveness, and considers itself to be performing strongly in providing the public value for money. The Service has demonstrated over a period of time that relative to other Fire Services across the country it has improved significantly in its cost per head of population and represents a lean organisation. In 2007/08 the Fire and Rescue Service cost the public of Hertfordshire £33.78 per head, which is the 6th most cost effective Service in the county[25] (See Case Study 3 – HFRS: High Performing and Low Cost).
In addition, HFRS is recognised by a number of stakeholders as being a high performing fire and rescue authority which adds significant value. Well established benchmark performance data against the Service’s family group shows the FRS performing well against like fire and rescue authorities in all national indicator and key outcome performance statistics, and Audit Commission and CLG data shows the FRS performing well nationally[26]. Commissioned research in March 2007 shows that HFRS is a highly valued public service within Hertfordshire and worth the cost to the public:
“The Fire service is trusted 100%....they are rapid response and very professional”
“It makes it worthwhile paying council tax if it partly funds the fire service”[27]
Public satisfaction scores from the HCC annual tracking survey show that satisfaction of both users and non-users of the Fire Service has increased significantly over the past two years[28].
The Organisation continues to look to improve the value offered by its service delivery through improved outcomes within existing resources. Targeting resources towards the most vulnerable and at risk communities in the county is a good example of this. The Service has recently refreshed its risk profiles of the County, building upon the success of the national Fire Service Emergency Cover (FSEC) toolkit. A profile of risk for 2009/10 has been developed taking into consideration local incident data and trends, and deprivation data[29] which allows for the targeting of prevention resources, and the subsequent evaluation of the effect in driving down risk. This risks profile has been well communicated to front line staff via the district planning process[30]
The Service uses its extensive performance and benchmark information to improve transaction costs when compared to other fire and rescue services. An example of this is for malicious false alarms. The Command and Control centre have employed a policy of challenging malicious calls in order to drive down this cost to the Service, and benchmarked data demonstrates that the Service is the highest performing FRS within the family group on malicious false alarms attended[31]. The transactional cost of mobilisation as stipulated in the Special Services policy is £475 per incident.
Decision Making & Commissioning: 3
Whole life costing is an embedded part of the procurement process within HFRS and forms an element of the business case made prior to purchase. An example of this are the new helmets the Service procured in 2008 which considered the capital and revenue costs of the product compared against their expected useful life. The value of the product against this cost was derived from benchmarking with other products and FRS’, and user centred testing of two comparative products[32]
The Service ensures that good quality performance and financial information is well communicated across the Service and to a variety of stakeholders in order to inform and improve decision making (as described under KLOE 2.2). Well embedded benchmarking data allows for the routine comparison of performance data against cost per head and other financial information. The results are widely communicated across a variety of stakeholders and used to inform decision making at all levels.
Managing efficiencies: 4
Despite being a high performing and low cost organisation, HFRS continues to look for further efficiency savings across the Service. A £250k efficiency saving was made in the 2008/09 financial year and a further £50k so far has been identified for savings from the 2009/10 budget[33]. The annual internal budget setting process and Star Chamber allows for the scrutiny and challenge of individual budgets against organisational and community priorities[34]. The Service has demonstrated in the past that it is prepared to make controversial decisions in order to achieve efficiency savings with the closure of Radlett and Bovingdon retained fire stations in 2006. Since this decision the Service has continued to monitor and evaluate the effect on service delivery and attendance standards and report this to a variety of stakeholders[35]. Work is ongoing in 2009/10 to identify areas for further efficiency savings by looking at some of the structures and models employed currently to deliver services[36] and rationalisation of support and admin functions across the Service[37]. Timing is important in such sensitive reviews, but decisions made within 2009/10 are expected to contribute significant efficiency saving towards the projected HCC budget deficit within the 2010/11 financial year along with demonstrating progress against some of the challenges laid out in the ‘Rising to the Challenge’ report.
The Service engages well with a variety of partners to ensure the innovative delivery of services. HFRS has a strong and well embedded presence locally on CDRP partnerships and demonstrates a wealth of unique projects and initiatives to help address identified local problems. At a strategic level, the Service has recently engaged with the local Primary Care Trust and with Adult Care Services to implement a joint programme of targeting older people across the county in order to help drive down risk[38] A First Contact Signposting scheme has been developed of which HFRS is a key partner. The signposting scheme is a multi agency approach which enables staff, volunteers and older people to access, through a single gateway, a range of preventative services that can enhance independence and improve well being. When agencies come in to contact with a service user they complete a simple signposting form. The form collects basic contact details and asks the client 10 yes/no questions. The signposting form is then sent off to the Signposting Team who makes the appropriate referrals to other partner agencies. This is a further example of how the HFRS and other HCC departments work collaboratively with one another and external partners to use resources innovatively to deliver outcomes on the ground.
Case Study 3 – HFRS: High Performing and Low Cost
HFRS undertakes extensive benchmarking activity against family group comparators, and uses and distributes this information widely to help drive improvement activity and the continued targeting of resources towards those at highest risk across the community. Benchmarking performance data shows that resources are very successfully being targeted according to priorities and towards high risk areas and residents. The Service represents a high performance and low cost Service when compared both against family group comparators and nationally.
HFRS is part of Family Group 4, which is a collection of 16 Fire & Rescue Services throughout the UK with a similar and comparable demographic make up and risk profile to Hertfordshire, as stipulated by CLG. The table below gives a comparison of the performance of HFRS and the performance of our Family Group during the most recent Quarter 3 period of the 2008/09 financial year:
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Hertfordshire Fire & Rescue Service shows excellent comparative performance vs. its Family Group, being placed in the top 4 (out of 16) for all National Indicator subcategories. This is within the context of the service continuing to demonstrate outstanding value for money, at a cost of £33.78 per head of population for the year (CIPFA 07/08), which places the Service as 2nd most cost effective within the Family Group and 6th nationally. This represents a vast relative improvement in cost effectiveness from a cost of £24.24 per head of population in 1997/98 which placed the Service at 21st most cost effective nationally, representing only a 9.8% real term increase in budget over the 10 year period.
1.3) Is the organisations financial reporting timely, reliable and does it meet the needs of internal users, stakeholders and local people?
SCORE 3: (See HCC Use of Resources self assessment submission). Whilst the Audit Commission will be aware of issues around the timely publication of accounts and ongoing work around this area, HFRS continues to develop its performance in this area. The use of management information is wide-spread in helping to inform decision making, and the Service makes an effort to inform the public and other key stakeholders of performance and financial information.
The nature of the governance of HFRS as a County Council Fire & Rescue Service, added to the ongoing rationalisation of shared services with other HCC departments, means that shared arrangements assessed under the HCC Use of Resources inspection are in place for the collection and reporting of accounts and significant strategic level financial information.
Financial monitoring and forecasting: 2
The revenue monitor for each major department including HFRS is presented to SMB and to elected members, and the respective management board and shows original budget, latest approved budget and variance, and critically remedial action being undertaken to tackle overspends. This can be seen within the 2008/09 financial year where financial reporting led to SLG agreeing on the freezing of recruitment and overtime. Moreover, it is presented alongside performance information to help managers analyse budget issues with performance information in mind, and vice versa.
Financial reports to monitor performance and support of strategic decision making: 3
As described under KLOE 1.2 and 2.2, HFRS uses well embedded performance and benchmark data, alongside financial reporting practices, to communicate tailored performance and value for money data to a wide variety of stakeholders and audiences. There have been significant advances over the last financial year in the reporting of such information at the HCC level, which HFRS contributes towards, as described within the HCC Use of Resources self assessment.
Preparation of accounts: 2
Please see KLOE 1.3.4 of the HCC Use of Resources self assessment submission.
Publishing reports: 3
HFRS ensures that both financial and performance information is published in a transparent way to a variety of different audiences. Examples such as the Youtube video giving the public an overview of Council Services and costs[39], the press release outlining the HFRS most recent CPA scores[40] and the financial information contained within the Community Safety Plan 2009/12[41] help to inform a public audience about the finances of HFRS. In addition to this, the service publishes significant performance information to a variety of key stakeholders, as described in KLOE 2.2.
Governing the Business – How well does the organisation govern itself and commission services that provide value for money and deliver better outcomes for local people?
2.1) Does the organisation commission and procure quality services and supplies tailored to local needs, to deliver sustainable outcomes and value for money?
SCORE 4: Procurement is a real strength within the Service. Engagement with a real variety of forums and consortium allows the service to ‘cherry-pick’ the procurement option which offers the best value for money. The procurement process is user-centred and adopts good practices in whole life costing. There are strong links demonstrated between procurement and the achievement of Service priorities, and the Service continues to evidence the use of assets towards the achievement of multi-agency and community objectives.
Clear vision of expected outcomes: 3
Procurement activity strongly supports the strategic objectives of HFRS and wider community objectives. Much of the procurement activity occurs through the technical services department, and their departmental plan demonstrates how their procurement objectives tie in with the service’s strategic aims[42]. Procurement activity is not exclusive to this department however, and the procurement of products is always with a Service objective in mind. A good example of this internally is the procurement of e-learning tools in the form of the Ashridge and Aspire e-learning products[43]. Both of these are widely available to HFRS staff through the online Fireweb[44] portal, and support a wide array of both operational and non-operational competences and personal attributes. In addition, the Service continues to procure training resources for all level of manager on the Top Performers Programme[45] which HCC runs regularly, the Leadership Academy for aspiring future leaders and the Management Graduate Scheme. Participation in these schemes help to develop managers of the future for the organisation, specifically around communication, managing performance and change and modernisation as identified within the HFRS People Strategy[46]. The effectiveness of these tools helped the Service to achieve its Investors in People accreditation in 2008.
Extensive Involvement in Commissioning: 4
HFRS has a track record of user involvement and understanding the needs of the user through the procurement process. Through the Technical Services evaluation process, two fire helmets from different manufactures were identified as both the best in terms of value for money, and meeting the exacting standards required for Personal Protective Equipment A trial of both types of helmet was set up on stations to allowed for a decision to be made according to the preference of the front line staff. Similarly, the Rappel retained availability system is a good example of the Service identifying a problem of retained staff availability, understanding the needs of the retained staff in being able to flexibly make themselves available, and accordingly implementing a procured solution (see Case Study 4 – Rappel: Improving the Retained Duty System Availability).
HFRS is also able to use assets from partner agencies to enable the delivery of services towards wider community objectives. HFRS work closely with Hertfordshire Constabulary on a daily basis. The amount of time spent ‘on the streets’ is an indicator by which PCSOs are measured and they currently have a target of 80% of their time to be spent in the community they serve. It was identified at a local CDRP meeting that in the Markyate area, the nearest Police station was Hemel Hempstead, an 18 mile round trip. This clearly meant a large amount of time was spent travelling to and from Markyate to Hemel Hempstead. An agreement is being put in place whereby the local retained fire station is to be used by a PCSO and a neighbourhood police office. As a ‘drop in’ point. This will help forge better links with local police officers and fire crews to deliver on partnership priorities. This is another example of the way HFRS and HCC work with partners to ensure public money delivers the best possible outcomes for communities.
HFRS also co-locates on 16 of its stations with the East of England Ambulance Service. As of present, no FRS in the East of England had managed to agree with the East of England Ambulance Authority a co-responder scheme, despite HFRS attempts to stimulate this[47]. However, this has not restricted HFRS in pursuing forward thinking partnership practices. Sharing the same buildings allows for the utilisation of HFRS assets to deliver community objectives, and enables staff to work cohesively together with paramedics at a local level and enables some degree of joint training.
Improvement through service redesign: 4
HFRS is constantly looking for new and improved ways for delivering service which represent better value for money. The introduction of Rappel (see case study 4) acts as a good example as to how the Service has used a technological solution to dramatically improve a process which is already in place. The Service has also recently reviewed its’ decision to source its main information management computer server with a 3rd party contractor, Sophtlogic. Upon review it was decided that the quality of service provided by Sophtlogic did not meet the strategic ambitions of HFRS, and so the server and its management has been brought back in house. This allows for the better control over the management of data contained within the Server, the redevelopment of in-house skills in managing databases, and a greater degree of flexibility which will allow the data management systems to support the development of the organisation against the modernisation agenda[48]. In addition, the service has recently completed an exercise to upgrade the network speed across the county at all locations, due to an identified problem with the existing network speed affecting the ability of front line staff to access electronic resources and recording facilities. This will help to facilitate the rollout of electronic systems such as IRS, Rappel and Views, and will continue to support the Service in delivering future electronic systems to improve the collection and timely reporting of data.
Case Study 4 – Rappel: Improving the Retained Duty System availability
In August 2008, the Strategic Leadership Group of the Fire and Rescue Service made the decision to purchase the Fortek Rappell electronic availability system for use by all personnel who work the retained system.
The retained element of Hertfordshire Fire & Rescue Service is fundamental to our emergency cover across the county. Retained firefighters are a group of well trained and community-spirited men and women who are 'on-call' to respond when their pager bleeps, having been called into action by our Command & Control Centre, where 999 calls are handled. Many of our retained staff have other jobs and provide targeted standby cover during days, evenings and weekends.
The Rappel system is an application that calculates the current and future crew resource and station availability and allows crew members to book on and off via, mobile or landline phone or via the internet. The system is based on ‘web browser’ software and can be viewed by all staff from home or station (with appropriate password protection). The system has an interface with the Vision system in Command & Control which will allow the resource status to be updated minute by minute in the control room.
The benefits are:
- Flexibility to firefighters who can book on and off with ease.
- Station staff notified via text message if their crew falls below the appropriate level.
- Each call-out sheet will include the names of those indicated as available.
- Trends of availability identified to allow for the planning of shortfalls.
- Availability of appliances up to date in Command & Control there-by ensuring more accurate mobilising of available resources
- Control can use system to look ahead for standby or relief crews[49].
Previous to the introduction of the Rappel system, there were inaccuracies in the recording of availability hours of the retained crew. It was difficult to predict retained availability and the collation of information was not consistent. The introduction of Rappel has corrected this. Through the trial run in 4 retained stations, HFRS can monitor accurately the availability in hours. For example, for Baldock Station from 3rd February 0:00 to 17th March 15:00, there was a possible availability of 1,023 hours. The Rappel report can tell us that Baldock Retained station was available for 878.04 hours and unavailable 144.96 hours. Baldock has an 85.83% availability. The use of this new technology has made it easier for retained staff to communicate their availability and has in turn has improved availability across the pilot stations. The system also allows for the increased flexibility of retained staff in fitting availability around their lives without compromising retained cover.
In essence the use of this new technology system should assist crews to keep their fire engine on the run and allow for quicker and more accurate mobilising to incidents, demonstrating how I.T solutions can optimise the use of resources in the service of better outcomes.
Understanding the supply market: 4
As explained under ‘evaluation of procurement options’, HFRS benefits from the understanding and purchasing power of a variety of key markets through its continued involvement in a range of procurement forums and consortia. In particular involvement in the HCC Central Buying Consortium, which contracts for over £1 billion per year, the Service is able to source a variety of products from pens and pencils to lease cars for personnel. The Service continues to benefit from a very strong procurement position being involved in a multitude of such partnerships which exert significant influence over markets. The Service is able to play a strategic role in the management of decision relating to procurement through the new HCC Commissioning and Procurement board.
Evaluation of Procurement Options: 4
HFRS as a County Council Fire & Rescue Service benefits from involving itself in a wide variety of procurement forums. The Service is an active member of regional procurement forums and the national FireBuy procurement system. The Service is currently looking to procure the IMASS system through Firelink[50] and is working with regional Fire and Rescue Services to research the best option for procuring driver training[51]. The Service also takes significant advantage of the Hertfordshire Procurement Forum and the central Local Authority Buying Consortium, both of which extend significant purchasing power. HFRS has recently procured its’ Hot Fire training facility through its County Council procurement options[52]. Involvement in these forums allows for HFRS to cherry-pick the best option (on a case by case basis) according to the quality of product and the value derived from the market power of the consortium.
Reviewing Service competitiveness and achieving VFM and wider community objectives: 4
HFRS is continually pushing itself forwards for review and audit and prides itself on being a very self-aware organisation. This can be demonstrated by the Service being one of the first Services nationally to nominate itself for the Peer-reviewed Operational Assessment. The Service continues to review its structure of service delivery and support services. HFRS has developed shared services such as its’ human resources, finance, property and asset management support services which are shared by all HCC departments as a part of the wider County Council project on “The Way We Work” . The Service has also recently undergone a support services trailblazer review at the Training & Development Centre facility at Longfield in Stevenage, as part of a wider HCC review, which aimed to standardise administrative roles, reduce duplication and improve efficiency. This was the first phase in a four phase project [53].
HFRS is able to take full advantage of the full degree of consortia in which it is involved when analysing procurement solutions. The Service also makes good use of benchmark information and the experiences of like-organisations to help understand the likely effectiveness of a procured option versus internal delivery. An example of this was the recent need for a training programme for new recruits, which the Service looked to procure a solution in early 2009. After evaluating the options it became clear that the Service could provide a better value product in house, and chose to follow this option[54]. HFRS has since been in discussion with Suffolk FRS and now provides training for their new recruits, which will improve the economies of scale of the delivery of the programme.
2.2) Does the organisation produce relevant and reliable data and information to support decision making and manage performance?
SCORE 4: The Service has excellent and well-embedded systems of performance reporting to Members, Senior and middle managers, which the roll out of Views will enhance. Reporting of performance is timely and against priorities outlined within the Community Safety Plan 2009/12. Data quality is good and accurate, timely and relevant data providing to a range of key stakeholders. The Service is driving forward improvement in this area with the appointment of a new role and significant process mapping and redesign outlined, the delivery of new systems such as Rappel to provide user-friendly and accessible information, and the implementation of a variety of data quality checks to build on already existing processes.
Produces relevant and reliable data and works with partners to secure data quality: 3
Hertfordshire Fire and Rescue Service has made significant improvement in the quality and reporting of data over the past 12 months, and is making progress in improving accuracy, validity, reliability, timeliness, relevancy and completeness of information[55]. The Service has employed the use of data quality checks for a significant period of time and continuously improves upon existing processes. An example of this from the Fire Damage Report (FDR) incident forms in checking the accurate recording of casualty data. Sampling checks and benchmark comparisons of performance highlighted that front line staff were over-reporting serious casualties and under-reporting minor casualties. Manual data quality checks[56] were put in place have ensured that the Service is now more accurately reporting casualty data which better reflects the Service’s performance comparably. The Service however, recognises the unsustainability of manual data quality checks and has been working to automate data quality reporting holistically. The implementation of the national Incident Recording System (IRS) has allowed the Service to build automated quality checks on operational data[57] which are run on a daily basis. This allows for the management of data quality through Command and Control to identify both the mis-reporting of operational incidents and also ensuring the timely reporting and completion of the incident data.
The Service is also making significant progress in improving the culture of the organisation in collecting and reporting data accurately, at the first attempt. There are strong lines of accountability for data quality from SLG with a named lead[58] responsible for the review and improvement of data quality policies, procedures and a long term strategy, to the Officer in Charge (OiC) of the incident being responsible for the quality of the information they report being held to account through a clearly identified chain of escalation[59]. The Service has recently appointed an Information Analyst (funded from savings made from within the Service’s budget) to help move forward the quality of the data across the Service and the ensure consistency of policies and procedures[60]. Work is also underway to process map all information management processes in order that the Service can embark upon business process redesign[61] of key information processes and review existing or implement new data quality checks.
At a local level, the Crime and Disorder Reduction Partnerships (CDRP) on which HFRS has a strong presence across the County, facilitate the sharing of data according to local priorities (See Case Study 5 – North Herts Performance Information and Data Sharing).
Case Study 5 – North Herts Performance Information and Data Sharing
Stevenage and North Herts District acts as an example of the growing culture of using good quality information to base decisions on the allocation of resources, for both internal and partnership purposes. Quarterly the district managers meeting uses information produced corporately to base a discussion around performance, and to prioritise issues and areas of risk based on trend information[62]. Highlighting particular areas of concern allows for the discussion to be continued at a partnership level, and to stimulate partnership activity. An example of this on the North Herts CDRP responsible authority group which, using HFRS performance data, identified deliberate vehicle fires and a particular problem in the Hitchinwood Offa and Hoo ward of Hitchin. This intelligence allowed the Police to begin installing specific Automatic Number Plate Recognition (ANPR) cameras to address the problem[63]. Similarly an identified problem around vandalism and arson of NTL boxes in Royston led to a joint Police and Fire Service press release[64] and joint activity through an Environmental Action Day on the 11th September 2008 around the Burns Road area of Royston, leading to the removal of graffiti, rubbish and other significant fire risks[65]. Since this activity there has been a reduction of the problem.
Provides information which supports the decision making process: 3/4
HFRS continues to ensure that performance information produced is relevant to the specific audience in mind, in order to enhance its usability. A quarterly performance report is produced for SLG and the Community Safety Panel[66] which outlines key Service-level performance information. More detailed district performance information is also produced at a ward level which is applicable to Watch and Station Commanders (known as ‘CSPG’ data). The roll out of the Views performance reporting system early in 2009/10 will allow the Service to build upon its’ reporting through the creation of a multitude of specific performance reports. This will be tailored to Service, District or Station level personnel following significant user-engagement on content and format of performance reporting, and will provide timely and relevant performance information to managers responsible for the allocation of resources[67]. Performance information is balanced, covering the Service’s strategic framework and moving away from the BVPI-induced focus on operational incident data only[68]. From 2009/10 quarter 1 performance reporting, the Service will include both qualitative and quantitative performance reporting of KPI data quality.[69]
Views has also allowed the Service to develop its automation of the transfer of performance information between systems. Automated data transfers between source information systems and the Views system via a flat file for all monthly reported performance information has been established which reduces the need for double-handling of data. In many areas, the Service is making progress to remove paper-based recording systems. An example of this is the introduction of the ‘Rappel’ system for recording Retained Duty System (RDS) availability (See Case Study 4 - Rappel) which helps reduce the recording burden and double handling of data, whilst improving the reporting accuracy and timeliness of key operational information.
Through the use of performance and operational data, the Service has identified a trend for increasing incidents of school fires, which have resulted in some high profile incidents in the recent past[70]. In discussion with Children, Schools and Families (CSF) department, an officer from HFRS has been seconded to CSF for 12 months to help deliver a programme of reviewing school fire safety arrangements across the county.
Case Study 6 – Performance Reporting against Strategic Objectives
Hertfordshire Fire and Rescue service recently published their Service plan, the Community Safety Plan 2009/12, which for the first time will cover a 3 year period. The plan sets out the Service’s strategic aims and objectives to the period March 2012. The Service has a strong history of reporting operational performance information but has recently made significant improvements in the quality and quantity of performance information reported, to a variety of appropriate audiences in a accurate and timely manner. Up to the 2008/09 financial year, performance Service level information was predominantly reported around BVPI’s and other operational performance indicators as required by CLG. The Service has now aligned Service level performance indicators very closely with strategic priorities, as clearly set out within the Community Safety Plan. From April 2009 this will allow HFRS senior managers to be able to monitor progress against strategic priorities on a regular basis via the ‘Views’ performance system, along with quarterly monitors to the group.
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Ensures data security and compliance with statutory requirements: 3
HFRS complies with HCC policies around ‘Information Security’[71] and ‘ICT Acceptable Use’[72] which are both in place and well embedded, and HFRS benefits from the advice and guidance of the corporate information governance team. The result of this is minimal to no data security issues occurring. At a more local level the Service continues to monitor and address data security issues as a matter of priority, and restricts access to confidential sources of information and systems through password and limited access as standard. The Service is comfortable taking difficult decisions in order to maintain sound data security. An example of this is complete access to the incident reporting system BOSS, which provides ‘live’ incident data to Service personnel. The Service was concerned about data security and so removed access to the system, but has since reinstated after implementing robust audit trail tools to monitor usage and hold individual users responsible for their actions.[73]
Monitors performance against priorities: 4
The Service has in place robust performance reporting systems which report performance against key performance indicators (KPI). The Community Safety Plan 2009/12 aligns clearly KPIs against each of the Service’s strategic aims over the three year period.[74] This suite of performance indicators will form the core of Service level performance reporting to SLG and to Members on the Community Safety Panel both as a quarterly monitor and monthly updated information within the Views system, once rolled out. In addition, the Service Action Plan 2009/10 (the Service’s top level improvement plan) has aligned to each project, KPIs which the Service may use as indicators for success. Every programme and project on the Service Action Plan requires a project brief and will be championed by senior managers and by SLG. The Service has recently realigned resources so that a projects officer can assist with the management of corporate projects. They will act as a corporate project facilitation resource to the Service to ensure that appropriate projects are well managed and are delivered on-time, in-scope and within budget[75].
HFRS demonstrates strong use of risk profiling information which can inform the allocation of resources. At a strategic level, significant community profiling and risk information for both the medium and long term was used to facilitate strategic planning sessions and some scenario planning[76] with senior managers in the creation of the Community Safety Plan 2009/12[77]. At a local level in order to build upon district profiles which were produced in 2006 and the FSEC tool, the Service has recently produced district risk profiles which use past incident data and deprivation data to map risk[78] Profile maps have been included in annual district plans[79] which identify high risk super output areas which should attract investment of preventative activity. As the risk profile is built upon past trends of incidents, it allows the maps to act as an evaluation tool to monitor the impact upon risk ratings of each super output area of prevention activity.
2.3) Does the organisation promote and demonstrate the principles and values of good governance?
SCORE 4: HFRS feels that it is performing highly in ensuring good governance practices are adopted. The Service can demonstrate good relationships between Members and Senior Managers, with good member training and development in place. The direction set is clear around both the strategic aims and ethical expectations of staff, and this is well communicated to all stakeholders. Partnership governance is robust and demonstrates delivery at the local levels, with the strategic governance improving.
Principles of good governance: 4
Senior managers and Elected members within HFRS have an ongoing constructive and transparent working relationship where Members feel comfortable offering constructive challenge to officers. Regular briefings take place between the CFO, DCFO and the Executive Member for Community Safety[80]. The Service makes provision for the training and development of Elected Members in issues related to the Fire and Rescue Service. In July the CFO will lead a session for newly elected Council Members on the topic of Community Safety[81] and the Lead Member for Community Safety has attended Member Development sessions at the national Fire Service College[82] which are aimed at improving awareness of the strategic issues surround the Fire and Rescue Service.
The roll out of the individual performance management and development scheme for operational staff has led to an improvement in the definition of roles and development activity tailored to staff and organisational needs[83]. From 2009/10, the Training & Development Centre will receive development plans for all operational staff and will therefore be able to tailor training activities according to identified need and any skills gaps across the organisation[84].
Case Study 7 – Problem Orientated Partnership.
Hertfordshire Fire and Rescue Service is a statutory partner on the Crime and Disorder Reduction Partnerships. These are multi-agency groups critical to the delivery of Government commitments on preventing and reducing crime and enhancing community safety. Experience across the county has shown that where agencies work closely together they can help each other to achieve key targets and thus deliver better outcomes for communities and for individuals.
As a direct result of the Welwyn & Hatfield CDRP a Problem Orientated Partnership (POP) was developed to look more closely at specific problems within the area. HFRS both chair and host the POP in an area of Welwyn Garden City. A particular problem at Woodhall shops in the Peartree ward was identified and partners worked together using the SARA model (Scanning, Analysing, Response, and Assessing)[85] to develop initiatives to reduce crime and anti-social behavior in the area. Local PCSOs and the HFRS Community Safety Team are now informed via text of emergency calls to this ‘hot spot’ area. Engagement with local shop keepers has seen joint solutions implemented which have resulted in a reduction in deliberate fire setting. A variety of distraction and engagement strategies have been developed collaboratively, one of which has seen HFRS sponsor the football kit for a local youth football team – the Woodhall Wanderes. Regular review meetings are undertaken by the CDRP of progress, and the combined district has seen a 41% decrease in deliberate fires over the 2007/08 period.
Purpose and Vision: 4
The Community Safety Plan 2009/12 clearly defines the mission and vision of the organisation, and also outlines the strategic objectives which cover the next three year period. In addition the plan identifies key performance indicators against which to monitor strategic progress[86]. This has been well communicated with press and communications literature produced to coincide with the launch of the document[87], presentations at internal Service events[88] and document launches to local district stakeholders jointly with the Policing Plan. The golden thread of direction is evident throughout the planning framework with district and station plans ensuring accountability of actions aligning with Service priorities[89]. As of 2008/09, over two thirds of F&R staff were able to identify a link between their own objectives and targets and the Community Safety Plan[90]
Progress towards the National Fire Service Equality and Diversity strategy is a key priority for the Service, demonstrated by the Service adopting challenging stretch targets against recruitment of under-represented groups within the workforce. An action plan is in place which outlines all key accountabilities for the Service making progress, which is monitored regularly by the Equalities Board, chaired by the CFO and involves the Executive Member for Community Safety. At the more strategic level, the CFO also takes the lead on Diversity and Community Cohesion for the entirety of HCC.
Ethical Framework and Culture: 3/4
HFRS has adopted the framework of values as set out in the FRS National Framework 2008/11 and the National FRS Equality and Diversity Strategy 2008/18, which are outlined in the Community Safety Plan 2009/12[91]. The organisation encourages an open and honest culture and welcomes challenge from all levels of the organisation. The CFO personally responds to ‘Ask the Chief’ emails which can be anonymised at the originators request[92], and the CFO and DCFO host regular well attended middle managers events to hold open discussion about the Service and its’ direction[93].
HFRS actively encourages the workforce to express any concerns or issues and aims to resolve them as soon as is practicable. As a department of HCC, HFRS staff were recently asked to participate in a staff survey. The results of this were presented at the SLG on the 22nd April[94]. The results demonstrate that employees of HFRS are generally satisfied with the support of their line managers and feel that their ideas and opinions make a contribution towards the Service. The staff survey indicates that some staff have a concern with incidents of bullying and harassment at work, and further investigation is underway to understand this concern and to address any underlying issues[95].
Partnership Governance: 3
HFRS has a strong record of engagement and delivery of outcomes through the local district Crime and Disorder Reduction Partnerships (CDRP) (See case study 7 – Problem Orientated Partnership). The Service has also recently launched the RTC Reduction Strategy[96] and is working with HCC and County-wide partners to help drive down incidents and repercussions of RTCs across the county, including the improved sharing and use of data.
The Service has also improved in its engagement of partnerships at the strategic level, through the Safer and Stronger Communities partnership. The Service is now represented on the Chief Officer’s Group (the accountable body for this theme) by the DCFO, with the District Commander for Prevention sitting on both the Stronger and Safer working groups. In addition the Area Commander for Community Safety chairs the implementation leads group.
2.4) Does the organisation manage its risks and maintain a sound system of internal control?
SCORE 3: HFRS undertakes management of corporate business risks successfully, and can demonstrate an emerging and congruent agenda of risk management at the project level. The Service undergoes significant challenge annually through the Internal Audit process, and continues to build upon robust processes for resilience both internally and at the partnership level.
Risk Management: 3
HFRS has a well embedded process for managing corporate risk. SLG has identified the most serious Service level risks and added them to the corporate risk register, which is updated and presented to SLG on a quarterly basis. Recently the Service has adopted the HCC JCAD system which has implemented an electronic system to manage and monitor corporate risks[97]. In addition, risks of high importance are reported to SMB on a quarterly basis via the SMB quarterly performance report[98]. The corporate risk process plays an important role in driving mitigation and improvement activity, and a recent Internal Audit inspection of the risk management process within HFRS found that all risks are being managed effectively with satisfactory actions and arrangements in place[99]
Risk management is also an increasingly important part of the emerging project management culture, with reporting structures being put into place. Project risk logs and issues logs are considered as good practice by the Service, with escalation of risks to the project board, SLG and then to the Service level risk register, if appropriate[100]. The Service is keen to build upon its current risk management process and to ensure compliance with good practice is the norm across the Service
Counter fraud and corruption arrangements: 3
The Council’s Anti-Fraud and Corruption Strategy[101] is clear and accessible, setting out how suspicions are reported to and investigated by Internal Audit. Internal publicity is given to successfully investigated cases, as a deterrent to future incidents. Messages have been issued to staff via the intranet and “TeamTalk” emails to raise awareness of such matters as the whistle- blowing procedure, money laundering[102] rules, and compliance with IT policies.
Internal Audit is resourced to undertake such investigations, and has undertaken a number of these in 2008/9 without adversely affecting its assurance role. Two senior auditors have this year achieved the new CIPFA fraud investigation qualification, and have both been involved in effective investigations. The Council assessed its compliance with CIPFA’s “Managing the Risk of Fraud” and implemented those changes necessary to further strengthen its arrangements, such as formal reporting of anti-fraud work in the internal audit annual report.
Systems of internal control: 3/4
As outlined in the HCC Use of Resources Self Assessment 2009, HCC’s 2008/9 review of system of internal audit, and the Audit Commission triennial review of internal audit (December 2008), confirm internal audit’s compliance with all the elements of CIPFA’s standards (Code of Practice for Internal Audit in Local Government 2006).
Each year the Service undergoes a robust Annual Governance Statement internal audit process around various streams of corporate governance. This process ensures transparency and challenge to the systems of management the Service employs, and is signed by the CFO[103].
HFRS Business Continuity arrangements are robust and follow both the public sector "Risk Management Standard", developed jointly by ALARM, AIRMIC and the IRM and those of the Business Continuity Standard BS 25999.
The Service also takes reasonable measures to question contractors and third parties in regard to their BCM arrangements, particularly IT providers such as Sophtlogic[104]
As a category one responder under the Civil Contingencies Act, HFRS is fully involved with both Local Resilience Forum (LRF) activity through all six phases of the integrated emergency management cycle and the Regional Resilience Forum (RRF) in the same way. The Service continues to be a committed member of the Regional Management Board.
Case Study 8 – Hitchin Sikh Engagement
The Hitchin Sikh activity programme[105] is an example of local level partnership working, which has successfully engaged with a specific BME community. Hitchin has a large Sikh population of approximately 4,000 people with whom the Fire Service had only limited communication. National data has identified that some BME groups can pose a higher risk in terms of fire, and personnel at Hitchin station identified the need to better understand the profile and potential risks of the Sikh community in Hitchin. Their objectives were to provide an increase in home fire safety checks and smoke detector ownership in private dwellings and community buildings. Identifying potential barriers to their engagement with the community, Hitchin staff ‘recruited’ volunteers from the Sikh community to assist with community safety initiatives and to provide a translation service, which allowed staff to present to the community leaders on fire safety issues. As a result, safer cooking practices in commercial style kitchens in the Gurwanda have been introduced, and awareness of a potential career in the fire service for members of the Sikh community has been increased.
The engagement process was two way and firefighters now have a much better understanding of the Sikh culture, better enabling them to deal with the needs of this thriving local community.
The project has gone from strength to strength and has been recognised nationally for its success[106], resulting in it being nominated for the FRS Equality and Diversity Awards 2009[107]. Testament to the working partnership formed between HFRS and the Hitchin Sikh Community is an informal meeting of the Strategic Leadership Group being held at the Hitchin Gurwara (Sikh Temple) on the 29th April 2009
Managing Resources – How well does the organisation manage its natural resources, physical assets, and people to meet current and future needs and deliver value for money?
3.3) Does the organisation plan, organise and develop its workforce effectively to support the achievement of its strategic priorities?
SCORE 4: HFRS feels it is performing exceptionally well under workforce planning. The Service is driving forward against the national equalities strategy and is making significant progress in developing engagement of staff with local communities. Change management practice is extensive and the model employed for indentifying needs and delivering training and development of staff is considered good practice. Whilst HFRS recognises that it has some development to undertake under workforce planning, steps have been taken over the past year to ensure that the basic data sets on workforce profile and establishment information is in place to allow for progression in this area.
Productive and Skilled Workforce: 4
As described in KLOE 1.3, HFRS is constantly looking at the way it structures the organisation and staff in order to provide the most effective and efficient service possible. A track record of recent changes such as the creation of the Policy, Planning and Performance department in 2006, the creation of the Community Safety Taskforce in the same year, and the recent appointment of the Information Analyst and Database Administrator [108] to help move the Service forward in information management processes. These all demonstrate shifting resources to invest in people with the right skills to address specific problems and issues.
The Service is keen to address skills gaps and training requirements in line with strategic priorities. The PMDS system which was rolled out during 2008/09 requires that development plans are completed for each individual and submitted to the training centre. This will allow the provision of training and development resources to be tailored towards need. In addition, the Service has a strong culture of developing staff locally through line managers. The staff survey says that 69% of Fire & Rescue employees have undertaken On the Job Training. Further verification of this is that the Service has been reaccredited under the Investors in People assessment in 2008/09, as a department of HCC.
Both operational and non-operational recruitment is undertaken on behalf of HFRS by Manpower, under the HCC contract. In January during the last trainee firefighter recruitment process, the HFRS recruitment web pages received in excess of 23,000 views during the month[109], which shows the Service to be excelling in attaining a healthy level of competition for positions.
The training of operational personnel to ensure the right skills are available for the management of emergency situations, is an ever present and ongoing function. Much of the operational training is undertaken in-house with the HFRS training facility at Longfield recognised nationally as a model of best practice[110] in Fire Service training. The Training Centre has developed an initial 18 week training course for new recruits based around the national occupational standards, which develops trainees in the underpinning knowledge and skills of the profession. The Centre also helps to develop managers through the Assessment Development Centre (ADC) process. This process starts with the identifying of staff who show the potential for promotion, and the provision of development opportunities to ensure that the identified person is qualified to undertake the assessment and the role. This development comprises a range of in-house bespoke courses and externally facilitated courses. The ADC process is open to both wholetime and retained staff. HFRS recognises the value that retained staff offer to the organisation and put plans in place to support their development. HFRS are aware that retained staff work differently to wholetime staff and additional support is offered to retained staff, including holding ITOP and ADC awareness sessions in the evenings as well as daytime hours, and holding workshops specifically aimed at retained staff. Training courses are also held in the evenings utilising district trainers to deliver risk critical information to retained staff. Breathing Apparatus courses are delivered at weekends to lessen the impact on retained staff.
Nationally it has been recognised that FRAs have difficulty in recruiting retained firefighters. This however is not the case in Hertfordshire and the organisation is currently running at only a 3.53% vacancy rate (April 2009).
Workforce Planning: 2
Workforce planning is an ongoing area of development in the Service, specifically ensuring that the Service’s workforce profile and establishment data is fit for purpose to allow for workforce planning to take place. It was identified via data quality sampling that the workforce equalities profile data held by HFRS was not fit for purpose. To address this in April 2008 a survey was distributed to all staff to allow for a cleanse of personnel data held by the Service, to ensure that the Service can effectively profile its workforce and meet required equalities reporting requirements[111]. The data now provides a more stable base from which to allow workforce planning to take place.
Workforce statistics are presented to both SMB and to SLG covering all HCC departments/Services on a monthly basis[112]. This is complemented by the establishment sheet which is kept fully up to date with leavers, new joiners and moves within the Service[113]. Both these reports allow SLG to identify gaps in staffing and to take actions accordingly.
From an operational workforce planning perspective, the Service has recently adopted a policy to allow for the transfer of identified personnel from the retained duty system (RDS) to the wholetime duty system (WDS)[114], recognising the skills and knowledge RDS staff may contribute towards the Service and widening the pool of staff from which to plan the positioning of the ‘right person in the right place at the right time’.
In terms of the longer term development of the future leaders of the Service and the development of individuals showing strong potential, HFRS engages with both the HCC Management Graduate Scheme and the Leadership Academy. The Graduate Scheme recruits high calibre recruits who complete 4 six month placements as part of their scheme, one of which is within HFRS, and the service aims to attract these individuals after the scheme. The Service has also had two individuals participate in the Leadership Academy which develops individuals showing high potential for senior management positions through academia and the management of HCC wide, high profile projects. HFRS welcomes the indication in the FRS National Framework 2008/11 that CLG will look to develop a graduate entry level into the Service to support its aims and objectives in developing and nurturing talent.
Organisational Change: 4
HCC as a whole has a very strong recent record of successful change management through ”The Way We Work” programme, and offers good support to managers in managing change locally through the organisational change policy and toolkit[115].
HFRS is keen to ensure that progress against the FRS National Framework and the modernisation agenda is maintained at a healthy pace, and is accepted by staff. The vision for the long term evolution of the Service is set out on page 45 of the Community safety Plan 2009/12. Culturally, organisational change is difficult for staff to manage, and this is recognised by the Service. In October 2008 the Service commissioned a two-day management seminar for all middle and senior managers to help improve skills for managing change[116]. This training was received well and will be followed up during 2009/10 with further training, including delivery to watch commander level staff, to further empower managers to deliver change. As identified under KLOE 1.3, the Service is aiming to consider a variety of potential efficiency savings through improving the structure of the organisation, to be implemented in 20010/11. Again it is recognised that managing the wider acceptance of change is important to the success and continued quality of service delivery in delivering significant change, therefore a Service-wide project is underway to engage with all staff over this issue. Project ‘Engage’ will entail a back to the floor exercise for senior and middle managers, complemented by a one-day engagement day for all watch commanders in order to gauge opinion and gather input into the change process[117]. This work is in addition to the wider channels of communication between senior managers and staff such as the ‘Ask the Chief’ email function, and the staff awards evening planned for September[118]
Case Study 9 – Volunteers Scheme and Supporting the 3rd Sector
Following on from a successful pilot exercise in the Watford area in 2008, HFRS has looked to extend its volunteer scheme across the County to all 5 district areas[119]. The pilot saw the recruitment of 13 volunteers who dedicated in excess of 700 hours of their time over a 6 month period. Of the cohort, 6 were women and 4 were from BME groups with a presence in the area. Between them the volunteers helped to raise the profile of the Service in the local community and stimulated demand for over 400 home fire safety checks, 55% of which were in ‘hard to reach’ communities.
The roll out of this scheme has been taking place across 4 of the 5 combined districts. A structure has been provided to district commanders to manage the process and recruitment interviews have been taking place. The volunteer scheme is attracting a variety of volunteers which are representatives of the local communities the Service targets and will be used to support of deliver services according to local risk and demand. Currently the Service has recruited around 60 volunteers who are awaiting their training.
Strategically the volunteer scheme’s objectives are as follows:
i) Supporting the third sector and the development of the skills of volunteers to aid their future careers, and helping to develop community cohesion within local areas through the use of the strong Fire and Rescue brand.
ii) Improved engagement with the local community and in particular, hard to reach and under-represented group which existing staff may find difficult to engage.
iii) The development of local capacity to help drive and take forward community safety and engagement initiatives
iv) The utilisation of skills from outside of the fire industry to help support the delivery of local objectives and priorities.
Diversity and good people management: 4
For some period of time, the Service has continued to develop staff with a greater awareness of the cultural profile of Hertfordshire, and provide the tools to help their engagement of hard to reach and potentially high risk communities. Equality and diversity training courses have been delivered for a considerable period of time to ensure the knowledge of staff in delivering against this agenda[120], and the fruits of this input are being seen. There are several examples of projects where the Service has successfully employed its profile and brand to engage with hard to reach and, sometimes, isolated communities to good effect, not just for fire safety purposes but towards the achievement of a multitude of wider community priorities and objectives (See case Study 8 – Hitchin Sikh Engagement). In addition, the Service has recently joined Stonewall, the lesbian, gay and bisexual charity.
HFRS has placed a high emphasis on making significant progress against the FRS National Equality and Diversity Strategy, demonstrated by having agreed to stretch targets in recruiting a workforce which represents the Hertfordshire community, as outlined within the Community Safety Plan 2009/12[121]. To help move forwards against these targets Herts HR and Manpower have been working closely with HFRS to assist in the development of a recruitment campaign aimed at attracting female and BME whole-time Fire Fighters. The HFRS branding was used throughout the recruitment advertising. The adverts went out in the local press as well as posters and leaflets to community centres and schools[122] as well as fire station open days. Manpower also advertised general open days in November and December 2008, which in turn increased the numbers of applicants attending Positive Action events held in January 2009 to target the recruitment of both BME and women. Of those attending the events, 59% went on to apply to the Service. Between April 2008 and March 2009, the Service received 238 expressions of interest via the recruitment pages on . of these 55% were from women and 52% were from a BME group. In addition in 2009, of a total of 843 applicants received for fire fighter positions, 86 (10.2%) were from a BME community and 54 (6.4%) were female. Of the 48 new starters in 2008/09, 4 (8.3%) were women and 3 (6.3%) were from a BME community.
-----------------------
[1] F&R strategic compass
[2] Star chamber documentation
[3] Budget allocation for CFS community safety panel minutes
[4] SLG briefing note on P&P & budgets
[5] Fire & Rescue budget schedules 09-10
[6] Charity shop funding bid
[7] Harrow Court reconmendations 5th progress update April 2009
[8] LiFE performance reward grant bid
[9] Service planning guidance
[10] S&NH district plan 2009
[11] Job Description for AD Performance and Business Support
[12] Rising to the Challenge Data set
[13] SLG away Day notes 2304-2009
[14] Hertfordshire Sustainable Community Strategy
[15] Community Safety Plan 2009/12
[16] SLG workshop 1 presentation
[17] S&NH District Plan 2009
[18] London IRMP
[19] Policing Plan/CSP launch presentation
[20] Community Safety Panel 1st April 2009
[21] Evidence of SLG budget monitor report
[22] SLG minutes 25th March
[23] Infocus March 2009,
[24] Better ways of Working workshops
[25] Rising to the challenge: Audit Commission Data tool
[26] Rising to the challenge: Audit Commission Data tool
[27] ORS Report, March 2008, p.15
[28] Tracking survey scores
[29] Lancashire model risk profile
[30] S&NH district plan 2009
[31] Community Safety panel report quarterly performance report Q3, 1st April
[32] Helmet Procurement business case
[33] Fire & Rescue budget schedules 09-10
[34] 25th March report to SLG
[35] Radlett attendance standard report, 3rd March 2008
[36] Fire Cover review Project Brief
[37] Service Support implementation documentation
[38] SMB report on signposting
[39]
[40] News release fire service CPA scores
[41] Community Safety Plan 2009-12
[42] Tech Services department plan 2009/10
[43] E-Learning - Ashridge & Aspire on Fireweb
[44] Ashridge virtual learning
[45] TPP course objectives
[46] HFRS People Strategy
[47] Ambulance
[48] ICT strategy and business case
[49] Station Memorandum No.94/08
[50] SLG report – IMASS procurement via firelink
[51] Driver training research business case
[52] Hot fire training facility business case
[53] Support Service review
[54] New recruit training costs
[55] Data quality paper to SLG
[56] FDR casualty checking process flow
[57] IRS casualty data process flow and quality checks
[58] SLG minutes – data quality
[59] IRS presentation for Control
[60] Job Description – Information analyst
[61] Karen Howard project brief
[62] S&NH minutes 20th Jan 09
[63] CSPG data showing deliberate vehicle fires in Hitchin wards
[64] News release – Arson attacks on NTL boxes in Royston
[65] HFRS LAP Update to members – September 2008
[66] HFRS Annual performance report (draft) 2008/09
[67] Views paper to SLG
[68] Community Safety Plan 2009/12
[69] Data quality report from IRS
[70]
[71] Corporate Information security policy
[72] ICT acceptable use policy
[73] Infocus (draft) 45 May 2009
[74] SLG paper – performance indicators and targets
[75] Projects Officer job description
[76] SLG away day notes – scenario planning
[77] Presentation SLG workshop 2
[78] Risk Profiles super output areas
[79] S&NH District Plan 2009/10
[80] CFO & lead member briefing notes
[81] CFO leading session on Community Safety for newly elected members
[82] Lead member Richard Smith attends Fire Service College
[83] PMDS SIS document
[84] Training project planner showing PMDS review dates 2009-10
[85] Welwyn Hatfield CDRP JAG 11th Dec 08
[86] Community Safety Plan 2009/12 p 34/35
[87] News release - views sort on Community Safety Plan
[88] PPP – Seminar presentation 12th March
[89] S&NH district plan 2009
[90] Staff Survey results from SLG paper 22nd April 2009.
[91] Community Safety Plan 2009/12, p.33
[92] Example ask the chief
[93] Middle managers meeting
[94] Staff survey results form SLG paper 22/04/2009
[95] SLG minutes 22/04/09 way forward from staff survey
[96] RTC Strategy 2009-10
[97] JCAD report to SLG
[98] SMB performance report – risk register section
[99] Internal Audit Report 2008/09
[100] IRS risk register and issues log
[101] Anti Fraud and Corruption Strategy
[102] Money Laundering Policy
[103] Annual Governance Statement
[104] Sophtlogic BCM assurance works
[105] Hitchin Sikh engagement progamme
[106] Sikh engagement CFOA case study
[107] Hitchin Sikh engagement awards application
[108] Information Analyst Job Description and DBA job description
[109] Views of Hertsdirect recruitment pages
[110]
[111] Equalities Data cleanse
[112] HR Key Statistics
[113] Establishment sheet presented to SLG
[114] WDS Phase 1 development
[115] Online managing change toolkit
[116] Worked planned with Advance programme/change management for 2009/10
[117] Project ‘Engage’ project brief
[118] Discussion paper – Fire Service recognition evening
[119] Volunteers – SLG Papaer
[120] Equalities and Diversity training schedules
[121] Community Safety Plan 2009/12, p.40
[122] Poster campaign for the recruitment of women
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